Darwin Mid Suburbs Needs Assessment
July 2016 DARWIN MID SUBURBS NEEDS ASSESSMENT
Contents
1. Introduction 4
1.1 The Study Area 4
1.2 Study Context 4
2. Regulatory and Policy Context 6
2.1 The Northern Territory Planning Act 6
2.2 The Northern Territory Planning Scheme 6
3. Demographic Context 9
3.1 Darwin Mid Suburbs Existing Population 9
3.2 Expected Future Population 13
4. The Planning Journey 14
4.1 Expected Outcomes of the Darwin Mid Suburbs Area Plan 14
4.2 Formulation of the Area Plan 14
4.3 How this document works 15
5. Residential Areas 16
5.1 Introduction 16
5.2 Context 16
5.3 Community Feedback 18
5.4 Implications for the Area Plan 22
6. Activity Centres 24
6.1 Introduction 24
6.2 Context 24
6.3 Community Feedback 27
6.4 Implications for the Area Plan 27
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7. Industrial Areas and Service Commercial Areas 28
7.1 Introduction 28
7.2 Context 28
7.3 Community Feedback 30
7.4 Implications for the Area Plan 30
8. Social Infrastructure 31
8.1 Introduction 31
8.2 Context 32
8.3 Community Feedback 37
8.4 Implications for the Area Plan 38
9. Movement and Transport 40
9.1 Introduction 40
9.2 Context 40
9.3 Community Feedback 46
9.4 Implications for the Area Plan 47
10. Essential Services 48
10.1 Introduction 48
10.2 Context 48
10.3 Community Feedback 50
10.4 Implications for the Area Plan 50
11. Environment and Heritage 52
11.1 Introduction 52
11.2 Context 52
11.3 Community Feedback 55
11.4 Implications for the Area Plan 56
References 58
Attachments 59
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1. Introduction
1.1 The Study Area • recognising the increasing importance of: • readily available and affordable housing; The Darwin Mid Suburbs are strategically located between the major centres of the Darwin CBD and • integration of land use and transport; and Casuarina, within the boundaries of Ludmilla Creek • a more efficient urban form; and and Rapid Creek. The Darwin International Airport and RAAF Base exists to the east of the study area. • opportunities to use undeveloped or underdeveloped sites in established areas to The ‘Mid Suburbs’ includes the suburbs of: increase housing diversity. • Ludmilla (excluding the portion south of Nemarluk Drive, which has been included in the Inner The Darwin Mid Suburbs will have a role in Suburbs Area Plan); accommodating a share of the population growth expected within the Darwin region over the next 40 • Coconut Grove; to 50 years. The Mid Suburbs will be required to • Nightcliff; accommodate a proportion of the 2 490 new infill dwellings that are forecast for the Mid and Northern • Rapid Creek; and Suburbs in the far term. • Millner. These dwellings will be provided through infill development. The Northern Territory Planning Commission is responsible for the preparation of 1.2 Study Context strategic land use plans to establish a framework to The Darwin Regional Land Use Plan identifies guide future infill development. threshold populations of 150 000 and 250 000 to guide identification of land required to accommodate In mid 2015, the Minister for Lands and Planning future growth in the short and longer term. The gave a mandate to the NT Planning Commission projections indicate that a population of 150 000 for to prepare a strategic framework for the Darwin the region could be reached within 5 years, with a Mid Suburbs called an Area Plan. The Area Plan longer term projection of 250 000 residents in 40 to is intended to establish a framework to guide future 50 years. development and accommodate the projected growth in the Mid Suburbs. The adoption of this framework The Darwin Regional Land Use Plan stipulates that will work towards better integrating land use, transport the land use structure identifies residential land with and infrastructure planning, and deliver improved the potential to eventually accommodate a regional development outcomes for the community, with population in excess of 500 000 people. sensitivity to environmental and heritage values.
The plan adopts basic principles for future residential The Area Plan also clarifies development choices development that include: rather than continued uncoordinated responses to • meeting the continued demand for traditional low population growth pressures. The clear principles density houses on individual lots; and guidelines within the Area Plan also reflect the demands and aspirations of the wider community. • increasing the choices in housing types, both on higher density more compact urban residential lots and a range of rural lifestyle lots;
4 Figure 1 - Darwin Mid Suburbs Scope Area DARWIN MID SUBURBS NEEDS ASSESSMENT
2. Regulatory and Policy Context
The NT Planning Act and the NT Planning Scheme regulate the use and development of land in the 2.2 The Northern Territory Darwin Mid Suburbs. Planning Scheme The NT Planning Scheme contains provisions that 2.1 The Northern Territory include: Planning Act • statements of policy with respect to the use or development of land; The Planning Act provides for appropriate and orderly • provisions that permit, prohibit or impose planning control of the use and development of land conditions on a use or development of land; in the Northern Territory. Section 2A states that the intended objects of the Act are to plan for, and provide • provisions that provide instructions, guidelines or a framework of controls for, the orderly use and assessment criteria to assist the consent authority development of land. The objects are to be achieved in assessing development applications; by: • other provisions in connection with planning for, or (a) strategic planning of land use and control of, the use or development of land; and development and for the sustainable use of resources; • maps, plans, designs and diagrams. (b) strategic planning of transport corridors and The NT Planning Scheme includes statements of other public infrastructure; policy to establish the expected nature of future (c) effective controls and guidelines for the development and guide the interpretation of the zones appropriate use of land, having regard to its and associated development provisions. A zoning capabilities and limitations; map for the Darwin Mid Suburbs is at Figure 2. (d) control of development to provide protection Policy documents within the Scheme are intended of the natural environment, including by to assist in the interpretation of the Scheme and the sustainable use of land and water resources; determination of the Development Consent Authority and (DCA). (e) minimising adverse impacts of development on existing amenity and, wherever possible, ensuring that amenity is enhanced as a result Darwin Regional Land Use Plan 2015 of development. The inclusion of the Darwin Regional Plan 2015 as a policy document under the NT Planning Scheme has established an avenue as a means to provide a strategic policy framework to guide the future growth Department of Lands, Planning and the Environment and development of the Darwin Region, including the Darwin Mid Suburbs.
The Darwin Regional Land Use Plan 2015 is a policy document within the Scheme that establishes a high level policy framework relevant to the Darwin Mid Suburbs. Darwin Regional Land Use Plan 2015
i
6 Figure 2 - Darwin Mid Suburbs Current Land Use Zoning DARWIN MID SUBURBS NEEDS ASSESSMENT
Compact Urban Growth Policy 2015 Compact Urban Growth is based on core principles to encourage development: The Compact Urban Growth Policy 2015 (CUGP) as a reference policy document of the NT Planning • around activity centres and public transport nodes, Scheme provides a consistent and transparent where dwelling and activity density may be at its set of benchmarks that will assist a decision highest; maker in determining the merits of higher density • along transport corridors that are within 400 residential development proposed by an Area Plan, a metres of an activity centre; rezoning application or an exceptional development application. • that maximises cycling and walking access to public transport, commercial and community The Darwin Mid Suburbs Area Plan incorporates facilities; and principles as stipulated in the Compact Urban Growth • that provides a zone of less intense development Policy, and provides an additional layer of fine-grained as a transition to lower densities of the policy to guide development intent in this strategic surrounding locality (generally 400 m around the locality. activity centre and public transport node).
The Compact Urban Growth Policy aims to The Compact Urban Growth Policy also establishes create compact and mixed activity localities that that areas outside 400 m from a designated activity contribute toward improving people’s lifestyle and centre will experience minimal change in residential creating socially, economically and environmentally density. Densities transitioning from activity centres sustainable communities. The concept as pertained should be respectful of the scale and character of in the policy document is that higher density the surrounding locality and in keeping with changes residential buildings are encouraged, and are usually reasonably anticipated within a locality. a key component of a Compact Urban Growth locality as illustrated in Figure 3 below. The focus of the Compact Urban Growth Policy is the improvement of urban sustainability, and balancing environmental, economic viability, social equity and liveability outcomes.
Lower densities/ continuation of Public transport node rad and activity centre existing density 400m ius
m rad 200 ius Transport corridor
Highest densities are around activity centre/ transport corridor and public transport node Density transition zone
Figure 3 - Compact Urban Growth
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3. Demographic Context
It is worth noting that an assessment of each 3.1 Darwin Mid Suburbs individual suburb shows that in 2011: Existing Population • the suburb of Ludmilla had a much higher proportion of family households and At the 2011 census, Darwin Mid Suburbs comprised correspondingly a higher proportion of children a population of 14,248 (refer Table 1), by 2014, the and young people aged 5-19 years; Estimated Resident Population (ERP) is estimated to have grown to 15,434 (Australian Bureau of Statistics • a large proportion of the family households in 2014). Ludmilla were single parent families; • Ludmilla had a significantly higher Aboriginal or As demonstrated in Table 1, compared with the Torres Strait Islander population; population of Greater Darwin, the Darwin Mid Suburbs is characterised by: • Coconut Grove had a higher proportion of people aged 70 and over when compared to the other • a lower proportion of children and young people in suburbs, and a significantly higher proportion all age cohorts under 19 years; when compared with Greater Darwin; • a higher proportion of young adults 20-34 years; • Coconut Grove had a higher proportion of people • a higher proportion of older people aged 60+; aged 20-34 years and a high proportion of single or lone person households; • a lower proportion of family households, particularly families with children and a higher • Coconut Grove had a lower proportion of couple proportion of single people and group households, families with children; couples without children and single parent • there were lower levels of home ownership in families; Coconut Grove; • a correspondingly lower average household size; • Coconut Grove had the lowest SEIFA score of all • a lower median weekly household income; the suburbs in the City of Darwin and the lowest median weekly household income at $1,355; • a much lower proportion of detached housing and much higher proportion of attached and apartment • Rapid Creek has the highest median weekly dwellings; and household income at $1,724; • lower level of home ownership and higher levels • Over half the total dwellings in Nightcliff and Rapid of rental housing. Creek are rental dwellings; and • Nightcliff had a higher proportion of couple The Socio-Economic Indexes for Areas (SEIFA) families without children. scores indicate a mixed socio-economic profile in the Mid Suburbs Area, with three suburbs (Coconut Grove, Ludmilla and Millner) having higher levels of socio-economic disadvantage than the average for Greater Darwin. Nightcliff and Rapid Creek comprise lower levels of socio-economic disadvantage than the average for Greater Darwin.
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A comparison of 2011 Census data with outcomes The increased proportion of retirees in the 60-69 of the 2001 and 2006 Censuses shows that while age group supports anecdotal evidence that older demographic changes from 2001 to 2011 differ people, as they retire, are not moving back to the slightly across the Darwin Mid Suburbs, there have southern states as may have happened in the past, been a number of consistent trends. The trend is as they now have children and grandchildren settled stipulated as follows: in Darwin. This trend has significant implications • most of the suburbs have experienced an increase for housing demands and social infrastructure in empty nesters/ retirees (60-69 years); needs to support the ageing of the population. This comparison also links to the suburb of Ludmilla, • the majority of suburbs have experienced an which continues to experience higher levels of socio- increase in older workers (50-59 years) and economic disadvantage. people aged 70 and over; • the majority of suburbs have experienced a decline in people aged between 18 to 24 years; • in Ludmilla and Millner there are fewer couple families with children and an increase in lone person households; • Nightcliff and Rapid Creek have experienced a decrease in the number of lone person households over the past decade; and • there are fewer people living in social housing across all suburbs except in Ludmilla.
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Table 1: Selected population characteristics, 2011 ABS Census
Darwin Mid Suburbs Greater Darwin
Population number 14 248 120 586
Age groups % %
0-4 years 6.3 7.4
5-9 years 5.4 6.8
10-14 years 5.7 6.9
15-19 years 5.7 6.7
20-34 years 26.0 25.3
35-59 years 37.2 36.0
60-69 years 8.7 7.3
70+ years 5.1 3.6
Family % %
Couple with children 41.4 45.5
Couples without children 40.6 37.0
Single parent families 19.3 15.9
Household structure % %
Family households 62.6 72.1
Lone person 28.8 21.3
Group 8.6 6.6
Average household size 2.5 persons 2.7 persons
Median weekly household income $1 661 $1 806
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Table 1 (continued): Selected population characteristics, 2011 ABS Census
Darwin Mid Suburbs Greater Darwin
Population number 14 248 120 586
Housing Structure % %
Detached 40.2 64.2
Attached (townhouse etc) 21.5 12.9
Flat, unit apartment 28.5 19.8
Owned outright 18.3 17.9
Owned with mortgage 27.9 36.7
Rented 49.8 41.9
Cultural background % %
Percentage Indigenous 9.0 9.2
Percentage overseas born 27.3 21.6
Country of birth (other than Australia) Philippines (4.1) England (3.2) England (3.4) Philippines (2.4) New Zealand (2.3) New Zealand (2.1) India (2.0) India (1.1) Greece (0.9) Greece (0.8)
Same residence as 5 years ago 36.4 37.1
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As demonstrated in Table 2, the population of the 3.2 Expected Future Darwin Mid and Northern Suburbs is likely to grow by Population an additional 6 723 people in the far term. In 2013, the population of the Darwin Region was Based on existing trends, the future population in the estimated at 137 000. The Darwin Regional Land Mid Suburbs is likely to be characterised by: Use Plan 2015 suggests that a population of 150 000 • an increasingly high proportion of people renting could be reached within the near term (5-10 years) including younger adults in single, group or couple and a population of 250 000 could be reached within households; the far term (40-50 years). • a significant proportion of older people, down- To accommodate for regional growth, it is anticipated sizing from both within the Mid Suburbs and from that an additional 2 490 infill dwellings will be required other parts of Darwin; and in the Mid and Northern Suburbs in the far term. Due • a reduced interest for families with children to to the nature of infill development, new dwellings reside in smaller dwelling types, however the within the Mid Suburbs are expected to comprise a proximity to schools, childcare facilities and mix of medium density (ie. two-storey terrace and recreation opportunities in the area may counter townhouse) and higher density (apartments). this.
Table 2: Dwelling and Population Forecasts, Mid and Northern Suburbs
Current Population Planning New Infill Approximate (2013) Horizon Dwellings Additional Population
57 000 Far Term 2 490 6 723
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4. The Planning Journey
4.1 Expected Outcomes 4.2 Formulation of the Area of the Darwin Mid Plan Suburbs Area Plan The Darwin Mid Suburbs Area Plan was prepared over three key stages: The Darwin Mid Suburbs Area Plan provides a • Stage 1 - Information gathering and analysis; detailed land use framework within the context of the regional strategic planning directions. These • Stage 2 - Area Plan formulation and community policies will combine to guide progressive growth and consultation on the plan; and development around existing and future urban activity • Stage 3 - Finalisation and formal exhibition. centres. These centres will facilitate walkability associated with the co-location of higher density residential development and a mix of commercial, A summary of these stages is provided for below. retail and community facilities and services, public transport and public open space. Stage 1 - Information gathering and analysis stage The Area Plan aims to provide the community, This stage included infrastructure capacity studies to the development industry and decisions makers see where population growth may cause issues and with confidence about the likely form of future how such issues may be managed. It is also included development. The Darwin Mid Suburbs Area Plan community engagement to identify issues of concern presents the characteristics and opportunities that that need to be addressed in the Area Plan. will shape the future of the area to foster community understanding and consistent decision making. Stage 2 - Area Plan formulation and The Area Plan as a framework for future growth will community consultation on the plan also inform investigations required to ensure that This stage comprised drafting the Area Plan and future essential infrastructure services can and are principles in response to the initial public consultation being provided commensurate to expected growth. and the infrastructure studies, and a soft launch of the draft Area Plan for further public comment. In summary the Darwin Mid Suburbs Area Plan: 1. Influences growth within the scope area by Stage 3 - Finalisation and formal exhibition providing guidance for development and therefore confidence for both developers and the wider The Minister to consider formal amendment of the NT community; Planning Scheme to incorporate the Area Plan as a policy document. 2. Guides both public and private investment; and 3. Coordinates the development of and investment in required servicing infrastructure to match envisaged growth.
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4.3 How this document works The Darwin Mid Suburbs Area Plan is underpinned by this background “Needs Assessment” document which outlines the key issues for consideration. This Assessment informs the vision, specific land use principles and acceptable responses of the Darwin Mid Suburbs Area Plan within the context of the issues raised by the community and the infrastructure investigations underpinning the land use plans.
This Needs Assessment is presented under the following key themes: • Residential Areas; • Activity Centres; • Industrial and Service Commercial Areas; • Social Infrastructure; • Movement and Transport; • Essential Services; and • Environment and Heritage.
STAGE 1 STAGE 2 STAGE 3 Information gathering and analysis Preparation of the Area Plan Finalisation of the Area Plan stage (includes assessing and formal public exhibition
5 in response to initial community neighbourhood character and consultation and other assessment of the Plan to amend the NT NOW 201 infrastructure networks to see where in stage 1, and public consultation Planning Scheme to include the MID 20 16 population growth may be preferred). Mid 2016 Area Plan.
Early 2016 on these draft plans. Stage 1 happened in late 2015 Stage 2 is happening now Stage 3 is expected in 2016
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5. Residential Areas
5.1 Introduction 5.2 Context Darwin’s Mid Suburbs comprise a diverse housing Existing Housing Typologies mix varying from low density detached dwellings, two storey attached housing, to higher density multi- Large areas of detached single dwelling housing is level unit developments. This housing mix reflects located in the suburbs of Ludmilla, Millner and Rapid the diverse demographics and the evolution of these Creek, while attached housing, units and high rise suburbs in response to changing demographics over apartments are predominately located in Nightcliff and time. Coconut Grove. Higher density housing of 5 storeys or above is located on Progress Drive, within walking Future development must recognise the importance distance to the Nightcliff Village and Woolworths as of continuing to provide housing diversity to meet well as public transport routes. community aspirations, within the context of development that is sympathetic to established The predominant housing type throughout the Darwin residential areas. Mid Suburbs is detached single dwellings, making up 40.2 per cent of the housing stock. These single There are three indigenous community living areas dwelling houses are mostly located within Ludmilla, within the Mid Suburbs: Rapid Creek, Millner and Nightcliff in reasonable proximity to community facilities, schools and 1. the Kulaluk Community, Coconut Grove; churches. 2. the Minmarama Community, Ludmilla; and Low to medium density attached housing makes up 3. the Bagot Community, Ludmilla. 21.5 per cent of the housing stock and is located predominantly in Nightcliff and Coconut Grove. The The Darwin Mid Suburbs also accommodates a majority of this housing is located in Nightcliff around significant number of the Department of Housing Chapman Road to the north of Ryland Road and to assets (see Figure 5, p. 21). A large majority of the south west of Bougainvillea and Aralia Streets. these assets are located proximate to the Nightcliff There is also attached housing located in Coconut Shopping Centre in Nightcliff and Coconut Grove, with Grove between Bagot Road and Dick Ward Drive. assets also found in Ludmilla and Millner. Higher density housing such as units and apartments make up 28.5 per cent of the housing stock in the Mid Suburbs Area. Most of this housing is located on Casuarina Drive and Progress Drive in Nightcliff, Sergison Circuit and Trower Road in Rapid Creek and Belle Place and Sabine Road in Millner.
Table 3: Dwelling Distribution in Darwin’s Mid Suburbs
Dwelling Type Darwin Mid Suburbs % Darwin region %
Detached 40.2 64.2
Attached (two storey 21.5 12.9 terraces, townhouse etc.)
Flat, unit apartment 28.5 19.8
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Residential Growth Demand Indigenous Community Living Areas The Darwin Regional Land Use Plan 2015 recognises Several Community Living areas exist within the Mid the importance of balancing infill and greenfield Suburbs study area. The Minmarama Community development and achieving a more compact urban on Dick Ward Drive in Ludmilla and the Kulaluk form to balance future population growth with suitably Community in Coconut Grove are both owned and available land. managed by the Gwalwa Daraniki Association (GDA).
Significant development has occurred in the Mid The Bagot Community on Bagot Road, Ludmilla Suburbs over the past few years, with the population is owned and managed by the Bagot Community estimated at 15 434 people in 2014. Incorporated.
Residential land use needs suggest the contribution Department of Housing Assets of the Mid and Northern Suburbs to accommodating regional population growth will require approximately The Darwin Mid Suburbs accommodate a significant 2 490 dwellings in the far term (40 - 50 years). proportion of the Department of Housing’s assets in the Darwin Region. Based on 2011 census, the Department holds 9.6 percent of all dwellings across Housing Supply and Development within the study area predominantly around Nightcliff Village/ Existing Zones Shops, Coconut Grove and Millner. The majority of A significant number of sites throughout the study the sites in the Mid Suburbs are approaching the end area are currently developed below the capacity of their useful life and could present an opportunity for of their existing zoning (see Figure 4, p. 20). For future redevelopment. Redevelopment of any public example, a number of sites in the south west part of housing sites will be a consideration of the relevant Nightcliff are designated Zone MD (Multiple Dwelling) NT Government agencies. but are currently occupied by a single detached house. Many of these sites are 900 to 1000 m² in size and therefore have the capacity to accommodate three dwellings under the provisions of the NT Planning Scheme.
Such sites are concentrated in existing Zone MD and Zone MR (Medium Density) areas in Nightcliff, Rapid Creek, Coconut Grove and parts of Millner. Were all these sites to be developed to the capacity of their zoning they could accommodate an additional 1 367 dwellings.
A further consideration is the potential for progressive changes to residential zones allowing for innovative housing solutions which remain pursuant to the intent of the zone. The consideration for Dual Occupancy within Zone SD is a prime example.
As the redevelopment of these sites is subject to the specific circumstances of individual land owners, the need to identify further redevelopment opportunities throughout the study area to accommodate the projected growth is required. Typical multiple dwelling development in Zone MR (Medium Density Residential)
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Multiple Dwellings within Zone SD (Single 5.3 Community Feedback Dwelling Residential) A number of sites in Zone SD (Single Dwelling Continued Spot Rezoning Applications in Residential) within the Mid-Suburbs Area Plan study Residential Areas area comprise more than one dwelling. Through The existing zoning pattern in the Mid Suburbs analysis of local land use surveys undertaken for the provides the community with a degree of confidence Mid Suburbs Area Plan, it has been found that within to the likely form of future development within their the Zone SD area there are: neighbourhoods. The zoning pattern indicates that • Approximately 18 lots comprising more than 2 the attached housing, flats and high rise apartments dwellings in a range of townhouse and unit type are predominantly located at the following locations: developments. In one case a lot in Nightcliff • along the Nightcliff Foreshore; comprises 11 individually titled multiple dwellings. • on Progress Drive; • There are approximately 10 lots developed with 2 dwellings in duplex type arrangements. • between Dick Ward Drive and Bagot Road in Coconut Grove; Whilst not in accordance with the current zoning, some of these developments have been established • sites adjoining the Jape Homemakers Village; legally through historic development permits, based on development guidance available at that point in • on the northern end of Sabine Road; and time. • adjacent to the Rapid Creek Business Village.
The NT Planning Scheme identifies multiple Ongoing spot rezoning and Exceptional Development dwellings as a prohibited use within Zone SD. In Permits are seen to be undermining the community’s most cases, multiple dwellings have existing use confidence in both the zoning and the planning rights which are protected under section 33 of the system and leading to calls for a coordinated, Planning Act as they were established before the integrated and transparent approach to increasing commencement of the Scheme. However, further densities in the Mid Suburbs. development is limited to ‘Repairs and Maintenance’, or the consent authority may issue an alteration permit if the proposed alteration will not alter a Compact Urban Growth measurable aspect of the existing building by a The concept of compact urban growth is understood margin of greater than 5% and, in the opinion of in the community and generally recognised as an the consent authority, will not materially affect the important tool to allow revitalisation and densification amenity of the adjoining or nearby land or premises. in key areas particularly those supported by transport corridors and centres of employment and activity. The Planning Act facilitates the granting of The community has been clear in outlining that exceptional development permits (EDP) for uses or an emphasis needs to be put on providing more development which would otherwise be prohibited, affordable housing alternatives close to a range of however only in circumstances where the Minister services and facilities. considers it is preferable to issue an EDP than to amend the Planning Scheme. “It would be sensible to encourage the redevelopment of all existing centres (throughout Darwin) to include shop top housing.” “Affordable and low cost public housing must be part of the plan.” Mid Suburbs residents
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Tropical Character tropical character and not be generic to other A strong sentiment expressed by the community was cities in the south of Australia. Building low the gradual demise of Darwin’s traditional lifestyle in density housing around a central courtyard terms of housing typologies. More specifically, this would provide tropical cool green spaces for was seen to be the progressive loss of larger lots with communal use.” single dwellings for duplex homes, blocks of units and high-rise apartments. Residents were keen to see Mid Suburbs residents a mix in development that not only focussed on high density development, but lower density townhouse Multiple Dwellings within Zone SD (Single type development. Retaining areas with detached Dwelling Residential) dwellings on large, landscaped lots was seen as a priority. The requirement for an Exceptional Development Permit (EDP) for alterations greater than 5% on Frustration was also pointed towards a lack in multiple dwellings in Zone SD (Single Dwelling consideration for Darwin’s tropical climate with Residential) is seen by members of the public as relation to the design and construction of recent unnecessarily restrictive. It has been outlined that development. Part of this problem has been the requirement for an EDP and the associated attributed to rigid building controls suited to southern application fee is unattractive and arduous for what conditions. in some cases could be considered as relatively insignificant building works. “there is adequate high rise development in these suburbs already and we believe it is time to increase the availability of housing in a more community friendly and lower impact way.” “building design should reflect the Darwin
Development fronting Nightcliff Foreshore
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Figure 4 - Underdeveloped sites under existing zoning in Residential Areas
Casuarina Drive
Rapid Creek Road RAPID CREEK
NIGHTCLIFF
Progress Drive Trower Road
Sabine Road
MILLNER
McMillans Road Dick Ward Drive Dick Ward
COCONUT GROVE
DARWIN INTERNATIONAL AIRPORT
Legend Underdeveloped sites:
LUDMILLA Bagot Road Suburban Residential
Small Lot/ Multiple Dwelling Residential
Medium Density Residential
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Figure 5 - Department of Housing Assets
Casuarina Drive
Rapid Creek Road RAPID CREEK
NIGHTCLIFF
Progress Drive Trower Road
Sabine Road
MILLNER
McMillans Road Dick Ward Drive Dick Ward
COCONUT GROVE
DARWIN INTERNATIONAL AIRPORT
Legend Department of Housing Assets
LUDMILLA Bagot Road
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Creek and Millner. Maintaining the overall character 5.4 Implications for the of these areas as single dwelling residential is a Area Plan priority for the plan. It is important to note that whilst these zones are retained, progressive changes to Identification of a framework for future residential elicit more innovative housing products in line with infill development will provide opportunities over and the intent of the zoning is also important to ensure a above the existing zoning to ensure adequate land greater housing diversity is achieved. supply in strategic locations to support growth in the long term. Transition Between High and Low Density Development The Darwin Mid Suburbs Area Plan provides an opportunity to guide development in the context of the Consideration will need to be given to identifying NT Compact Urban Growth Policy. This plan aims to opportunities to increase housing choice by providing address the development of activity centres and the different types of housing within transition areas delineation of boundaries between mixed use and between areas of higher and lower density housing purely residential areas. types.
Higher Density Residential Development Multiple Dwellings within Zone SD (Single Dwelling Residential) The Mid Suburbs Area Plan aims to provide the community with clarity as to the likely location and As discussed, Part 4 of the Planning Act exists to form of higher density development. recognise existing uses, buildings and works within the Northern Territory, and provides mechanisms Given that much of the existing multiple dwelling and in which this kind of established development can medium density zoned land is yet to be developed be considered when not in line with policy. Non- to its full potential, it is expected that there will only conforming existing uses, such as multiple dwellings be minimal zoning changes required throughout the within Zone SD (Single Dwelling Residential) are dealt Mid Suburbs Area. In this respect, sites with the with through the use of these mechanisms. highest potential for redevelopment include the large Department of Housing sites on Progress Drive. The issue of overdeveloped lots in Zone SD is not These sites are located adjacent to the existing endemic to the Mid Suburbs area, with instances Nightcliff centre area and are therefore well serviced found throughout the Northern Territory. Considering by a range of facilities including retail, commercial, it as a Territory wide policy change, rather than by community facilities and public transport connections. piecemeal areas may be seen as a more holistic approach to a wider issue. It is paramount that the necessary infrastructure can be provided to support higher density development. Rapid Creek Road Multiple Dwelling Precinct This includes essential services, movement and Riverine flooding and storm surge risk detailed in transport including parking and accessibility and section 11 ‘Environment and Heritage’ have created social infrastructure. Investigations have been the need to revisit land use along Rapid Creek Rd, undertaken to identify the augmentations and predominantly in the suburb of Millner. Given the upgrades required to support the future development. limitations to redeveloping properties due to the The provision of this supporting infrastructure is low density zoning of the land, the Area Plan treats discussed in following sections of this document. redevelopment as an opportunity to mitigate the impacts of inundation while facilitating redevelopment Retaining Intact Single Dwelling Areas of new flood resilient buildings by the private sector Achieving balanced growth in the Mid Suburbs also via an infill multiple dwelling precinct. depend on the maintenance of areas comprising lower density detached dwellings. In line with the investigations into traffic and essential services underpinning the Area Plan, the concept The existing pattern of the detached single dwelling for development along Rapid Creek Road is not areas in the Mid Suburbs is well-intact and mostly anticipated to require any specific upgrades to this located within walking distance to the schools, shops, infrastructure, outside of the upgrades required more church, the foreshore, public space for recreational broadly. use and public transport corridors. Detached dwellings are located in areas characterised by well landscaped street verges throughout Nightcliff, Rapid
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Zone SD (Single Dwelling Residential) development in Coconut Grove
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6. Activity Centres
6.1 Introduction 6.2 Context Activity centres are characterised by a mix of retail, Existing Centres Typologies commercial, community and residential development A mix of shops, offices, schools, community and that provides wide-ranging social, economic and residential developments are usually the central hub environmental benefits. A genuine mixed use activity of activity within a neighbourhood. The Darwin Mid centre is a place where people work, shop, relax, Suburbs currently has the following identified Activity meet friends and family and also live. Centres:
A range of vibrant activity centres will contribute Secondary Activity Centres to improving the efficiency of transport systems Nightcliff Shopping Centre and the Rapid Creek and the creation of walkable healthy communities. Business Village are secondary centres that service The centres will be the focus of higher density the weekly needs of the community and cater for residential development to improve housing choice surrounding communities. The Nightcliff Village area and affordability and to assist in addressing the also consists of other retail uses such as offices, increasingly diverse aspirations of residents in relation shops, post office and a library. to preferred lifestyle. Local Activity Centres Development of higher density housing around a Diamond Village shops on Sabine Road in Millner number of established urban activity centres (e.g. and Aralia Street Shops in Nightcliff are local activity Nightcliff, Millner and Rapid Creek) and along major centres focusing on convenience retailing that serves transport corridors (e.g. Progress Drive/ Dick Ward the community’s day-to-day needs. Drive at Nightcliff, Bagot Road/ Trower Road and McMillans Road/ Sabine Road at Millner) reflects Local Retail increasing interest in housing variety, particularly Local retail opportunities exist in a number of options close to employment, transport networks, locations around the study area. These include local facilities and services. “Cliffside” comprising shop top housing at the intersection of Nightcliff and Ryland Roads, the Beachfront Hotel and Rossiter Street Shops in Rapid Creek. Local retail is also found within the Coconut Grove industrial area on Caryota Court.
Specialist Activity Centres Jape Homemaker Village on Bagot Road is a specialist activity centre that includes a range of unique retail offerings including and bulky goods which attract people from all over greater Darwin.
Commercial Services along the Major Roads There is a significant mixed-use service corridor along the major transport routes of McMillans Road and Bagot Road. This mixed use corridor comprises several commercial related activities such as cafes/fast food and restaurants, service stations, Nightcliff Village entertainment, retail and office space servicing greater Darwin.
24 DARWIN MID SUBURBS NEEDS ASSESSMENT
Figure 6 - Current Activity Centres
Beachfront Hotel Casuarina Drive Aralia Street Shops Cliffside Rossiter Street Shops
Rapid Creek Road RAPID CREEK
NIGHTCLIFF
Rapid Creek Business Village
Progress Drive Trower Road Nightcliff Centre Sabine Road
Jape Homemaker Centre MILLNER
Diamond Village Shops McMillans Road Dick Ward Drive Dick Ward
COCONUT GROVE Legend
Caryota Court Secondary Activity Centre DARWIN INTERNATIONAL AIRPORTSpecialist Activity Centre
Local Activity Centre
Local Retail
LUDMILLA Bagot Road
Darwin Mid Suburbs Needs Assessment 25 DARWIN MID SUBURBS NEEDS ASSESSMENT
Analysis of the Existing Centres Network With a total site area of 5 890 m², these sites have the potential to be redeveloped as shop-top housing There is currently sufficient land provided for adding further commercial floor space to the local commercial related purposes in the Mid Suburbs. area. The Nightcliff Shopping Centre comprises of the Woolworths Shopping Centre, a Medical Clinic and Other Commercial Sites on Major Roads variety of shops. This secondary activity centre Existing commercial uses on Bagot Road provide provides services to a catchment beyond the Mid services accessible to the wider catchment of Greater Suburbs Area including the inner and northern Darwin. Additional service commercial uses have suburbs. been developed within Darwin International Airport land fronting Bagot Road and McMillans Road. The retail component of centres in Rapid Creek Offerings include Bunnings Warehouse, Kingpin Business Village comprises shops, convenience Bowling and a Petrol Station. This area is proposed store, cafes/ restaurants and non-for-profit for further development into the future by the Darwin organisations. This centre is considered as a International Airport Master Plan (2010). Notably, this neighbourhood centre or district centre due to the includes a 9 hectare site bound by Bagot, McMillans services it provides to a catchment beyond the Mid Roads and Osgood Drive, earmarked for commercial Suburbs. development as a “Home and Lifestyle Super Centre”. The Jape Homemaker Village on Bagot Road is a Locational Considerations shopping destination accommodating a variety of Given the existing availability of commercial floor businesses. The Village includes specialist outlets space in the Mid Suburbs, it is anticipated that the through to large national retailers that provide visitors only sites which will be available for significant with various goods and service offerings including a redevelopment will be 61 Progress Drive (former variety of bulky items that service Greater Darwin and Rite Price supermarket) and John Stokes Square the Top end. (47 Progress Drive). These sites have been identified to grow over time to meet with the needs of the future Future Evolution of the Activity Centres population. The redevelopment of these sites could Commercial Floor Space provide 18 280 m² of commercial floor space to Whilst there is currently sufficient commercial floor reinforce the existing Nightcliff centre, and underpin space available across the Mid Suburbs, given growth close to the centre. projected population growth and the concentration of development in mixed use activity centres, a The identified local retail centres within the scope moderate increase in commercial floor space is area will continue to provide local centre services required in the longer term (by 2050). within the boundaries of their existing zoning.
The Woolworths shopping centre is currently It is also expected that the Jape Homemakers Centre undergoing an extension of its floor space. This and Rapid Creek Business Village will continue to redevelopment will be beneficial in the longer term as provide their level of service within existing zoned the population in the Mid Suburbs increases. areas.
There are also additional retail outlets in the Jape The mixed use development at the corner of Homemakers Village currently under construction Nightcliff Road and Ryland Road comprising adding further to the Mid Suburbs commercial ground level shops, offices and a restaurant and services. residential dwellings above demonstrates the type of development that could be encouraged on other Zone Sabine Road Shops, Millner C (Commerical) sites such as the Aralia Street Shops, The Diamond Creek Village on Sabine Road in Millner and Rapid Creek Business Village. are accommodated on two Zone C (Commericial) lots. The two adjacent sites accessed via Dowdy Street and McMillans Road are also designated Zone C and are currently occupied by residential dwellings. 26 DARWIN MID SUBURBS NEEDS ASSESSMENT
6.3 Community Feedback 6.4 Implications for the Consultation has highlighted that the community Area Plan supports the idea of consolidating development within existing activity centres. It is seen that The opportunity to create a vibrant network of whilst higher order shopping centres play a major activity centres is limited by the level of demand for role, more localised services would improve local commercial floor space over the longer term in the neighbourhoods. In addition to improved local Mid Suburbs. Commercial growth therefore needs services, residents also provided support for a to be directed to priority activity centres where the diversity in housing options in areas proximate to a benefits of increased services will be most accessible range of facilities and transport options, examples of to the population. this include shop top housing within activity centre areas. The Area Plan identifies existing centres suitable for enhancement, such as the Nightcliff Shopping Centre. In addition to providing opportunities for residential Sabine Road Shops and Aralia Street will remain and commercial growth within activity centres, the Local Activity Centres with the possiblity of shop-top colocation of community facilities within activity housing. The Jape Homemaker Village will retain centres is considered important in fostering the its status as a Specialist Activity Centre serving the wellbeing of the community. Furthermore, efficient needs of the Greater Darwin area. public transport is recognised as an essential component in the revitalisation of activity centres. The potential renewal sites will be focused mainly around the Nightcliff centre, specifically on Progress “More areas should be made available for Drive. As with all renewal areas, a planning local shops throughout the suburbs to serve framework outlining clear guiding parameters for the immediate needs of the residents: corner the future development is essential. The framework grocery stores, cafes and workshops. Provision should identify urban design requirements and could be made for local commercial activity any performance criteria that will bring about the centres to be located at the bottom of high rise successful creation of the centres in such a way that it better integrate the existing centres of Nightcliff buildings.” Village and the Woolworths site. Mid Suburb Resident
Nightcliff Village facing south across Progress Drive towards John Stokes Square.
Darwin Mid Suburbs Needs Assessment 27 DARWIN MID SUBURBS NEEDS ASSESSMENT
7. Industrial Areas and Service Commercial Areas
Three yet to be developed land parcels within the 7.1 Introduction Kulaluk lease area (over Lots 5182 Town of Darwin Industrial and service commercial land plays an and 8630 Town of Nightcliff) are designated under important role in the overall function of the city. An Specific Use Zones that allow for industrial and adequate supply of affordable, appropriately zoned service commercial uses whilst minimising the industrial land of varied lot sizes, location and type impacts of being exposed to aircraft noise and provides employment opportunities for a growing maintaining the curfew free operation of the Airport. labour force, ensures businesses have access to their clients, suppliers and the transport network, One large site of around 16 hectares located on Fitzer and provides flexibility for the growth and changing Drive is designated Zone SD37 for uses consistent demands of the market. with Zone SC (Service Commercial). A further site comprising 2 hectares at the corner of Dick Ward Drive and Totem Road falls within SD37, however is designated for the development of light industrial 7.2 Context uses.
Within the Mid Suburbs, large portions of industrial The site fronting Dick Ward Drive is designated Zone and service commercial land is subject to noise and SD44 for uses consistent with Zone LI (light Industry). public safety impacts due to the day to day activities This site is also subject to the effects of Primary of the Darwin International Airport and RAAF Base. Storm Surge. The Australian Noise Exposure Forecast (ANEF) contours illustrate the impacts of noise on the Land within the boundaries of the Darwin International surrounding area and recommends acceptable uses Airport has been designated for “Business and of the land upon which this constraint applies. Industry” use in the Darwin International Airport Master Plan (2010). The master plan outlines Other constraints which exist proximate to existing that development in this area is to be service industrial and service commercial areas include commercial in nature, allowing for office, retail, physical and locational constraints associated with showroom sales and warehouses. Whilst not subject land capability including land subject to inundation, to the requirements of the NT Planning Scheme, development below the highest astronomical tide relevant commonwealth legislation exists to control (coastal landfill) and affects from storm tide. Guidance development on airport land. within the Northern Territory Planning Scheme outline the uses which are appropriate in these areas, and how present constraints are to be addressed through development.
Features of natural, cultural and archaeological significance also exist within these areas. Section 11 (Pg. 52) of this Needs Assessment discusses these points in greater detail.
Existing light industrial uses are confined to the Zone LI (Light Industry) areas of Coconut Grove to the north of Totem Road. This industrial estate includes a range of different lot sizes catering for manufacturing, construction, transport, external storage and warehousing activities. This precinct is well connected to the arterial road network via Bagot Road and McMillans Road.
28 Figure 7 - Current service commercial and industrial activities
Casuarina Drive
Rapid Creek Road RAPID CREEK
NIGHTCLIFF
Progress Drive Trower Road
Sabine Road
MILLNER
McMillans Road Dick Ward Drive Dick Ward
COCONUT GROVE
DARWIN Totem Road INTERNATIONAL AIRPORT
LUDMILLA Bagot Road Fitzer Drive
Legend Light Industrial Areas (Zone LI)
Specific Use Zone (Zone SD37)
Specific Use Zone (Zone SD44)
Commonwealth - Land designated for ‘Business and Industry’ use in Darwin International Airport Master Plan (2010)
Aircraft Noise Exposure Forecast (ANEF) Contours
Darwin Mid Suburbs Needs Assessment 29 DARWIN MID SUBURBS NEEDS ASSESSMENT
7.3 Community Feedback 7.4 Implications for the Community views regarding industrial land use were Area Plan generally of the opinion that such uses did not belong in areas such as the Mid Suburbs and were better The industrial and service commercial land within suited away from residential areas and the CBD. Coconut Grove is considered appropriate due to the proximity of the Darwin International Airport Industrial areas were seen by some as appropriate and RAAF Base. The impacts associated with the places for accommodating residential growth. Several activities of the airport ensure that these areas are respondents indicated that land on Fitzer Drive would constrained in such a way as to render residential have been better suited to residential than industrial uses innappropriate. or service commercial use and would reduce space available for recreational use. Whilst the boundaries between light industrial/service commercial and residential uses is acknowledged, the primary purpose of Zone LI (Light Industry) is “It’s not very nice walking past some of the light to ensure that uses onsite will not by their nature, industries located inside a largely residential detrimentally affect adjoining or nearby land. area.” Furthermore SD37 comprises guidance to ensure that development fronting Fitzer Drive protects Mid Suburbs Resident the residential amenity of the adjoining Ludmilla community.
A typical street in the Coconut Grove light industrial area.
30 DARWIN MID SUBURBS NEEDS ASSESSMENT
8. Social Infrastructure
Aspects of social infrastructure considered as part of 8.1 Introduction this assessment include: Social infrastructure, including community facilities • the supply of land for Community Purposes; and open space, contributes to the development of • civic and community facilities; healthy and sustainable communities. It ensures that a population is supported by a network of community • library and cultural facilities; facilities and services that are accessible, affordable • public open space; and responsive to local community needs. • recreation and sporting facilities, both indoor and The Mid Suburbs boast a wide range of social outdoor; infrastructure, including ample access to foreshore open space, aquatic and sporting facilities, a choice • health services and medical facilities; of schools, child care centres and churches, a local • aged care facilities and services; library and a range of medical and social support services. • child care centres and preschools; • primary and high schools, both government and Consideration of the need for social infrastructure to independent; support population growth in the Mid Suburbs is a critical component of planning for future development. • tertiary education facilities; As such a Social Infrastructure Assessment has been • welfare and support services; and completed to inform planning for the Darwin Mid Suburbs. • places of worship.
The following analysis discusses the major components of social infrastructure within the Mid Suburbs, and the community’s view of the future provision of these facilities and in conclusions identifies the implications to be addressed in the Area Plan.
Darwin Mid Suburbs Needs Assessment 31 DARWIN MID SUBURBS NEEDS ASSESSMENT
Despite this, it should be noted that access to open 8.2 Context space is not equitably distributed throughout the Public Open Space and Organised Mid Suburbs. Coconut Grove comprises the lowest provision of open space with 2.5 ha/ 1000 people. Recreation A list of organised recreation facilities can be seen in The Mid Suburbs contain a total of 38.3 ha of land Table 4 below, with their locations seen in Figure 8. zoned PS (Public Open Space), 0.5 ha of which is The study area contains one facility of regional vacant/undeveloped as public open space, or not significance – the Darwin Velodrome, located easily accessible to the community. 14.5 ha of land adjacent to Bagot Park. Constructed in 1971, the is within land designated for Zone OR (Organised facility is now below current standards and is in need Recreation). of upgrading. $1.5 million has been allocated in the 2015 NT Budget for upgrading, fencing, lighting, The quantum of Zone PS and OR comprises 52.8 ha refurbishing and surfacing of the track to bring it up to of land zoned for sport and recreation. This equates competition standard. to an overall level of provision of 3.4 ha per 1000 people, based upon the 2014 estimated population of Apart from the Velodrome, residents rely on major 15,434 people. When compared to the standard used sporting facilities outside the Mid Suburbs such as the in many Australian metropolitan areas of 2.83 ha/ stadium, field courts and indoor sports facilities at the 1000 people, the Mid Suburbs remains comfortably Marrara Complex. above the standard, suggesting that the area is adequately provided for. The study area adjoins the RAAF Golf Course, which is open to members of the public.
Table 4: Sports Facilities within the Mid Suburbs
Field Area Area Facilities
Nightcliff Sports Ground Nightcliff 3.87 hectares AFL Posts, Cricket Pitch
Rapid Creek Park Rapid 2.24 hectares Soccer pitch, tennis courts, disused bitumen Creek court
Bagot Park Millner 9.7 hectares Soccer pitch (used by junior soccer clubs) (Including velodrome)
Nightcliff Pool Nightcliff 1.67 ha • Pool • Café
Nightcliff Sports club/ Nightcliff 0.67 ha • Nightcliff sports clubs bowling club • Bar/dining • Meeting rooms for club members • Bowling greens
A World of Fun sports Coconut 1.56 ha • 6 Tennis courts (with lighting) centre Grove • 2 Beach volleyball courts • Pool • Indoor fitness facility • Futsal facility
Rapid Creek Road / Levi Millner 0.6 ha Open space which accommodates equestrian Street related uses.
Several privately • a swim school in Coconut Grove operated facilities • two gyms in Nightcliff and Millner • a yoga studio in Coconut Grove
32 DARWIN MID SUBURBS NEEDS ASSESSMENT
11 Figure 8 - Sport, Recreation and Open Space 3 Casuarina Drive
8 11 10 6 19 7 11 Rapid Creek Road RAPID 32 CREEK 18 1 4 NIGHTCLIFF 9 12
Progress Drive Trower Road
Sabine Road 15 26 20
29 30 MILLNER 22 21 25 14 27 McMillans Road 23 2 17 13 Dick Ward Drive Dick Ward
COCONUT 24 GROVE
5
DARWIN INTERNATIONAL AIRPORT 16
Legend Public Open Space (Zone PS)
Bagot Road Organised Recreation (Zone OR) LUDMILLA 1 Nightcliff Sport Ground/ Oval 17 Darwin Velodrome 2 AWOF (A World of Fun) Sports 18 Becker Place Park 3 Nightcliff Pool 19 Dudley Street Park 31 4 Nightcliff Bowls Club 20 Miller Street Park 5 NT Swim School 21 Harris Street Park 6 Ternau Park 22 Reynolds Court Park 7 Rapid Creek Reserve 23 Old McMillans Road Park 8 Clarke Crescent Park 24 Nation Crescent park 9 Rapid Creek Park 25 Gulnare Street Park 10 Bill Bell Park 26 Kelsey Cresecent Park 11 Nightcliff Foreshore 27 Ostermann Street Park 12 Alf Blazer Park 28 Mosec Street Park 13 Bagot Park 29 Athanasiou Street Park 14 Wong Yung Park 30 Sunset Drive Park 28 15 Craig Easther Park 31 RAAF Golf Course 16 Karu Park 32 Kurrajong Crescent Parks
Darwin Mid Suburbs Needs Assessment 33 DARWIN MID SUBURBS NEEDS ASSESSMENT
Community Uses Community Meeting and Activity Spaces The purpose of land within Zone CP (Community Space for community groups to meet and for Purposes) is to provide for community services and community activities and events to be held is an facilities, whether publicly or privately owned or important element of social infrastructure for all operated, including facilities for civic and government communities. Within the Mid Suburbs two facilities administration. Zone CP commonly accommodates exist for use by community organisations and groups uses such as education establishments, child care for meetings and activities – the Nightcliff Community centres, hospitals, community centres, libraries, Centre and the Coconut Grove Seniors Community post offices, churches, police stations, museums, Hall. However in both facilities space is limited in healthcare clinics, universities and social or cultural terms of size, quality and availability. clubs. Zone CP also covers other uses such as airports, barge landings and telecommunication Other facilities that provide some space for facilities. community groups to meet include: • The hall at the former Greek Orthodox School in Land for Community Purposes Nightcliff; The Mid Suburbs contain a total of 44.3 ha of • The hall at Nightcliff Primary School out of school Zone CP (Community Purposes) land, over a total of hours; and 26 sites. Rapid Creek has the most Zone CP sites with eight in total (22.4 ha in area) whilst Ludmilla has • The community centre within the Bagot the least with two sites (0.6 ha). community.
The following indicates the number of facilities that Overall, the area contains a scattering of spaces currently utilise Zone CP land: available for community uses. However, there is a • Schools, both private and public (7); lack of contemporary, well-designed and well-located • Child care facilities (3); multi-purpose activity space for the general population that is suitable for diverse social groups and a variety • Churches (7); of community and cultural activities. • Health Centre; • Community Centre; Child Care Centres • Seniors Community Hall; The study area contains six long day care facilities • Archives; and four pre-schools for children aged 4-5 years. The • Renal Treatment Unit; pre-schools are each attached to a primary school in the area (with two at government schools and two at • Alcohol/ Drugs sobering up residential care unit; independent schools). • Not-for-profit groups/ religious run social facilities including: Existing child care centres appear to have some • Medium to long term homeless men’s shelter; capacity to absorb the additional demand generated • Aged care residential facility; and by the forecast population growth. However, the demand on spaces at the Nightcliff Community Early • Natural fertility clinic. Learning Centre indicates there may be need for more Council or community run affordable child care It is worth noting that, although the Mid Suburbs have facilities. a significant number of Zone CP sites, there are also a number of community or social facilities located Educational Facilities within Zone C (Commercial), including the Nightcliff Library and Police Station located at Nightcliff Village The study area is served by three primary schools – and various not-for-profit organisations located in the Nightcliff, Millner and Ludmilla – and by the Nightcliff Rapid Creek Business Village. Middle School (years 7-9). Senior school students attend the Casuarina Senior College in the Northern Suburbs, or Darwin High School in the Inner Suburbs. Ludmilla Primary School is located just outside the
34 DARWIN MID SUBURBS NEEDS ASSESSMENT
Figure 9 - Community Facilities
Casuarina Drive 7
9 Rapid Creek Road 11 16 1 RAPID 19 15 17 CREEK NIGHTCLIFF
24
5 21 4 Progress Drive Trower 18 Road 10 22 23 Sabine Road 6
14 MILLNER13 2
McMillans Road Legend
Dick Ward Drive Dick Ward Community Purpose (Zone CP)
COCONUT 1 Nightcliff Community Centre GROVE20 8 2 Senior Citizens Community Hall 3 Bagot Community Centre 12 4 DARWINRapid Creek Business Village INTERNATIONAL5 Nightcliff Library AIRPORT 6 Early Learning Centre, Nightlife 7 Nightcliff Middle School 8 Juninga Centre 9 Nightcliff Primary and Pre School 10 Church of Jesus Christ of Latter-Day Saints Bagot Road LUDMILLA 11 Scouts Australia 12 Darwin Sobering Up Shelter - Mission Australia 13 Millner Pre School 14 Millner Primary School 15 Essington School/ Child Care Centre 16 Three year old Kindy - Rapid Creek Pre School 3 17 Greek Orthodox Church/ School 18 St Peters Anglican Church and Child Care 19 Nightcliff Family Centre and Child Care 20 Calvary Community Centre - Darwin Service Centre 21 St Pauls Catholic School and Child Care 22 Lutheran Church of Australia 23 Renal Treatment Unit 24 The Essington Early Childhood Centre
Darwin Mid Suburbs Needs Assessment 35 DARWIN MID SUBURBS NEEDS ASSESSMENT
study area boundaries in the Inner Suburbs, but its Cultural and Entertainment Facilities catchment area includes those parts of Ludmilla within the Mid Suburbs. Consistent with its size as a local catchment, the Mid Suburbs does not contain any cultural facilities such The three primary schools each have a government as museums or art galleries and there are no public pre-school either within the school site or nearby, as facilities for community arts activities or theatre space is the case with Millner Primary School. for local performing arts.
In addition, the Northern Territory Open Education There are a few social and recreational clubs within Centre is located within the study area, providing the Mid Suburbs which contain entertainment a distance learning school catering for students in facilities, such as bars/bistros/lounges. These include: years 10 – 12 from its location within the campus of • Nightcliff Sports Club (Bar/bistro); Nightcliff Middle School. • Beachfront Hotel; and The Department of Education has advised that all • Nightcliff Bowls Club. these schools and pre-schools have a reasonable amount of spare capacity to absorb additional Social Support services enrolments. The Mid Suburbs are home to a significant number None of the schools have been identified for major of non-profit community organisations that are works in the Department’s capital works program. either peak bodies representing welfare and support services, providers of welfare or support services or The study area contains two independent schools; interest or advocacy groups in the health and welfare the Essington School and St Pauls Primary School, a sectors, including: catholic school. • Anglicare NT; Consistent with its small size, the study area contains no facilities offering tertiary education or lifelong • Alzheimer’s Australia NT; learning. The Charles Darwin University campus is • Family Planning NT; located just outside the study area, the Casuarina Senior College offers evening classes for adults and • St Vincent de Paul; The University of the Third Age (U3A) offers lifelong • Darwin Asylum Seeker Support and Advocacy learning courses to older people in the community Network (DASSAN); meeting room at Casuarina Library. • Autism NT; Libraries • NT Shelter; The Nightcliff branch library is part of the City of • National Association for Prevention of Child Abuse Darwin library network and is the only library located and Neglect (NAPCAN); in the study area. The library is located within a shopfront premises in Nightcliff shopping centre and • The Smith Family; comprises the smallest branch in the City of Darwin • Larrakia Nation Aboriginal Corporation; area. Many of these services are clustered at the Rapid While Nightcliff Library provides all core library Creek Business Village and the Nightcliff Community services, its current small premises restricts the range Centre. of additional activities and programs that could be provided in addition to the spaces available for public computer use and social activities. The library does not contain any meeting rooms.
36 DARWIN MID SUBURBS NEEDS ASSESSMENT
Health Services 8.3 Community Feedback The study area contains four GP practices, all located in Nightcliff. There is also a Clinical Psychologist Public Open Space located in the Rapid Creek Business Village. Consultation with the community has highlighted the general notion that Darwin is losing its green space Community health and associated services located and tropical character. There is consensus in the within the study area include: community on the importance of retaining available • Nightcliff Renal Unit located on Dick Ward Drive; open space. and The community also emphasised that meeting future • Bagot Community Health Centre – a community- needs is not just about the reliance on the existing based indigenous primary health care centre quantum of open space available, but should also located on Bagot Road, Ludmilla. focus on improving the quality and quantity of what already exists. In this respect, there is strong support The study area population also has reasonably good for new developments to include areas for open access to the community health services delivered space, either for use by residents, or by the broader from the Community Care Centre in Casuarina. community.
In terms of hospital facilities, residents of the Mid Suburbs have ready access to the in-patient, out- “Any new developments should be required to patient and emergency services of Royal Darwin meet the design requirements of healthy spaces Hospital and the services of Darwin Private Hospital. and places”. Mid Suburbs Resident Accommodation and Services for the Elderly The only residential aged care facility in the study Organised Recreation area is the Juninga Centre located in Coconut Grove, Similar to the community’s thoughts around retaining which is a 26-bed service for older Indigenous and embellishing existing public open space, many Australians. There is no local residential aged care for agree that organised recreation facilities within the non-Indigenous residents. Mid Suburbs need to be utilised more effectively. Recommendations included the redevelopment and In terms of community aged care services, which improved management of existing facilities, to ensure provide services to support people to remain living that they appeal to a greater cross section of the in their own homes, the only service located within community. the study area is the Calvary Community Care – Darwin Service Centre in Coconut Grove. This facility “I’ve thought for ages it would be nice to have delivers a range of aged care, disability and other some amenities in our neighbourhood – cafes support services including Silver Chain home care and things like that. Public space options. The services. markets are fantastic, and the Foreshore is fine Across the Darwin region, there is a shortage of as it is. I also like the pop-up vans that appear aged care services relative to the demands now here and there.” being experienced by the growing population of older “There’s a park near me which could be people. A key issue for older residents is gaining upgraded.” access to sufficient services to meet their needs. Mid Suburbs Residents
Darwin Mid Suburbs Needs Assessment 37 DARWIN MID SUBURBS NEEDS ASSESSMENT
Community Uses 8.4 Implications for the There does not appear to be a strong view from the community that any particular community services are Area Plan lacking. There is a general opinion that an increase Modest forecast population growth suggests that in local shops and community services would be additional demands for social infrastructure will be appreciated, though the existing provision is adequate quite limited well into the future for the Mid Suburbs. for current needs. The community also identified the Given that the study area is already relatively well need for more efficient use of existing community provided for, this additional demand will mostly be land, particularly underdeveloped sites. able to be absorbed within existing levels of provision. The population growth is not expected to be sufficient “Definitely more shops [are needed]. Preferably to warrant new facilities, or to push the Mid Suburbs within the suburb itself, plus more doctors and above the population thresholds that would trigger other medical services.” demand for higher order district facilities. Mid Suburbs Resident However, many of the existing facilities are already old, outdated and unable to meet contemporary needs, and their limitations will be heightened as time goes by and the population expands. These shortcomings need to be addressed to cater for the growing population, and therefore will require upgrading and expanding.
Public Open Space and Organised Recreation
It is recognised that opportunities to increase the quantum of open space across the Mid Suburbs will be limited across the established, built-up areas of the Mid Suburbs.
Suburbs which would benefit from additional open space areas include Coconut Grove and Rapid Creek, though opportunities to increase open space should be seized across the entire Mid Suburbs area.
Options to increase the amount of open space in areas of concentrated development include the application of sub-division guidelines that require 10% of a sub-division site to be made available as public space, and requirements for 15% of the site area to be made available as communal open space in multiple dwelling developments. Within major redevelopment sites, the application of these guidelines will be essential to achieving high quality, usable public open space.
Nightcliff Foreshore/ Rapid Creek reserve trail.
38 DARWIN MID SUBURBS NEEDS ASSESSMENT
With regard to sporting fields, the current level of Libraries provision in the Mid Suburbs is adequate. However, with land and funds for sporting facilities limited, the While not a high priority, the need for renewal of approach favoured by both the Department of Sports the Nightcliff Library in the longer term should be and Recreation and City of Darwin is to make more recognised and opportunities for the upgrade, intensive use of existing facilities, through lighting and expansion and/ or relocation of the library should be surface upgrades and to provide more multi-purpose, explored. shared facilities in the future. Cultural and Entertainment Facilities A Draft Sports Field Plan (2015 – 2025) is being The future population will continue to rely on cultural prepared by the City of Darwin to guide the ongoing and entertainment facilities in the surrounding area. upgrade of sports facilities throughout the Darwin As the population grows and changes, there may region. be demand for more facilities at the local level, such as cafes, restaurants and bars. These uses are Community Meeting and Activity Spaces able to be accommodated within areas of Zone C It is recommended that a multi-purpose community (Commercial). centre of around 900 m² be developed in the Mid Suburbs to provide flexible spaces for a range of Social Support services social, leisure, learning, cultural and lifestyle activities. Social support services generally serve a district or One option would be to redevelop the existing regional catchment, so there is no specific need for Nightcliff Community Centre, to create a double new organisations to locate within the Mid Suburbs. storey facility with multi-purpose space on the ground However, the NT Council of Social Services has floor and offices for community organisations above. reported that many organisations are seeking to Other locations may be identified on an opportunistic relocate to the Mid Suburbs as it is more affordable basis as redevelopment of major sites occurs. and accessible than the city centre.
Child Care Centres Health Services There appears to be sufficient capacity within current It is expected that future demand for health services facilities to meet the needs of the future population, can be adequately catered for through existing health particularly as the proportion of children are expected services, both within and outside of the study area. to continue to be lower than the Darwin average. Redevelopment of commercial areas will also provide However, current patterns of utilisation indicate a high the opportunity for health services to establish within demand for child care that is affordable and run by the study area. Council or a non-government provider, which is likely to increase with a growing population. Accommodation and Services for the Elderly The Mid Suburbs has a significant and growing Educational Facilities population of older people. Meeting their future needs will involve providing suitable housing with With the exception of The Essington School, all of the good access to care services and appropriate schools and pre-schools within the study area have care services. Opportunities for physical activity, spare capacity and should be able to accommodate social connection, lifelong learning and community the population growth anticipated for the Mid Suburbs. involvement are also important. The Mid Suburbs is considered a good location for future residential care facilities. Should suitably located Zone CP land become available in the future, consideration should be given to its use for aged care facilities. The Greek Orthadox Community site in Rapid Creek presents an opportunity in this respect.
Darwin Mid Suburbs Needs Assessment 39 DARWIN MID SUBURBS NEEDS ASSESSMENT
9. Movement and Transport
9.1 Introduction 2011 floods. Movement and transport networks are important on Bagot Road many levels. Such networks are vital in supporting Bagot Road is a Territory controlled, multi-lane divided economic and social activity. A movement and road (6 lanes) which provides access between the transport network that offers multi-modal choices can Darwin CBD, the Mid and Northern Suburbs and the also contribute to a reduction in the carbon footprint Darwin International Airport. of an urban area. The role the existing road network plays in prioritising the movement of people by Sub-arterial and Primary Roads more efficient modes of transport (walking, cycling, Sub-arterial and primary roads generally connect to public transport) over time, will be essential to the arterial roads, and carry traffic directly to destinations sustainability and livability of the Mid Suburbs into the in the study area. Some of the noteworthy sub- future. arterial and primary roads are discussed below. Movement and transport systems that are effective Dick Ward Drive and safe result in economic efficiencies and better Dick Ward Drive is a two-lane sub-arterial road social engagement opportunities. Therefore, it is managed by the City of Darwin, which connects important to plan a multi-modal transport system to Fannie Bay with Nightcliff, also servicing the suburbs meet the diverse needs of the growing population. of Ludmilla and Coconut Grove.
Progress Drive 9.2 Context Progress Drive is a two-lane primary collector road Road Networks managed by the City of Darwin, which connects the Nightcliff Foreshore, Nightcliff Village and Coconut Arterial Roads Grove with Trower and Bagot Roads. Progress Drive currently accommodates relatively high traffic McMillans Road volumes (local and through traffic) close to the centre, McMillans Road is a Territory controlled, multi-lane and is linked by a series of roundabout and give-way divided road providing a primary arterial function T-intersections, some in close proximity with one for access between the Darwin CBD, the Mid and another. Northern Suburbs and the Darwin International Airport. McMillans Road has a wide landscaped Casuarina Drive/ Rapid Creek Road verge on its north side incorporating a shared Casuarina Drive and Rapid Creek Road are movement path. effectively one continuous two-lane primary road managed by the City of Darwin, which runs the full Floods cut McMillans Road at the Kimmorley length of the Nightcliff Foreshore and Rapid Creek Bridge almost every year. Structural flood mitigation from Progress Drive to McMillans Road. measures, specifically the Marrara Triangle detention basin is expected to reduce the frequency of flooding Rapid Creek Road was overtopped at multiple at Kimmorley Bridge. Refer to section 11.2 of this locations between McMillans Road and Trower Needs Assessment for further information on these Road in 2011 and was likely to have been similarly works. overtopped during other major floods. Trower Road Sabine Road Trower Road is a Territory controlled arterial road Sabine Road is a two-way primary road in Millner connecting the Northern Suburbs with the Mid and connecting Trower and McMillans Roads managed by Inner Suburbs and the Darwin CBD. Together with the City of Darwin. McMillans Road, Trower Road caters for the peak period commuter traffic demands to and from the City and the Mid and Northern Suburbs. Local Roads The City of Darwin controls local roads that have Trower Road has been overtopped near the various functions, including circulation of residential intersection with Rapid Creek during the 1974 and and industrial within local areas.
40 Figure 10 - Road Networks
Casuarina Drive
Rapid Creek Road RAPID CREEK
NIGHTCLIFF
Trower Road Progress Drive
Sabine Road
MILLNER
McMillans Road Dick Ward Drive Dick Ward
COCONUT GROVE Legend
Regional Transport Corridor (NTG) DARWIN INTERNATIONALSub-Arterial Transport Corridor AIRPORT(City of Darwin)
Primary Road (City of Darwin)
LUDMILLA Bagot Road
Darwin Mid Suburbs Needs Assessment 41 DARWIN MID SUBURBS NEEDS ASSESSMENT
Existing Network Function Road into Nightcliff Road is also recommended. Currently, the majority of the roads within the Mid Sub-arterial and Primary Roads Suburbs operate relatively uncongested. Dick Ward Drive Moderate levels of traffic congestion occur during Traffic modelling has indicated that in the longer peak times around the intersection of Progress Drive term, increased traffic use of Dick Ward Drive driven and Dick Ward Drive. This congestion is expected to by future population growth will necessitate the increase with further residential development in the augmentation of Dick Ward Drive to increase capacity. area. Specifically, this will require widening of the corridor between Hazell Court and Progress Drive. Further Growth in the Mid Suburbs, combined with additional investigation into the requirement and potential growth across the region will have implications for the alignment of this augmentation is needed to inform future management of the road network in the study the future requirements of this corridor. area. Progress Drive Potential Network Function Increased development in the area around Progress In order to understand how road networks within the Drive is putting increased pressure on the road’s Mid Suburbs may operate with anticipated growth, function. Furthermore, the existing layout of Progress The following has been considered: Drive may not provide for optimal connectivity • The anticipated future traffic demand that will and safe movement for pedestrians and cyclists. be generated by development in both the Mid With the above considered, there is the potential Suburbs and the broader region; and for the optimisation of the intersection with Dick Ward Drive with the possible introduction of traffic • A review of the safety and operation of the Road signals and additional turning lanes. The operation network within the Nightcliff Centre, in respect of of the Oleander Street roundabout should also be future traffic demand. investigated. The abovementioned analyses suggest that subject to a number of potential augmentations, Augmentation of Progress Drive from the roundabout the road network should adequately accommodate west bound towards the intersection of Dick Ward the increased traffic likely to be associated with Drive should also be investigated to ensure traffic development in accordance with the Area Plan. movement maintains appropriate levels of service and In order to ensure the road network is operating safety. efficiently, potential upgrades to be further considered are summarised below. Public transport priority and facilities for passengers along Progress Drive are also in need of Potential Future Upgrades improvement. Increased residential and mixed use development to the west of Dick Ward Drive, means These upgrades are subject to further investigations that, proximate to the centre, Progress Drive will before implementation of the final traffic solution. become more of a ‘high street’ for shoppers and other visitors. Consideration should be given to how Arterial Roads this section of Progress Drive serves the needs of pedestrians and cyclists. Bagot Road/ Trower Road There is the need for a significant upgrade of the intersection of Bagot, Trower and Nightcliff Roads. Sabine Road This junction forms the centre point of the study Sabine road is a wide two-lane road that could area and provides a major gateway to Nightcliff and provide a high quality bicycle link between Trower Rapid Creek. It is currently a traffic dominated area, Road and McMillans Road. and should be upgraded to improve accessibility for pedestrians and cyclists. Rapid Creek Road Works to reduce the predicted depth of flood water Extension of the existing right turn pocket of Trower to less than 300mm on local roads intersecting with
42 DARWIN MID SUBURBS NEEDS ASSESSMENT
Rapid Creek Road (in particular Sprigg Street and services, representing peak frequencies of 30 minutes Roberts Place) are necessary for safe egress in the or better. event of flooding of Rapid Creek Road. Route 4 services provide areas proximate to Dick Ward Drive with a relatively frequent service running Local Roads between Casuarina and Darwin CBD.
Nightcliff Road Out of peak times and on weekends bus routes Consideration should be given to the operation of the generally tend to run at frequencies of around 40 Nightcliff Road/Trower Road roundabout. The existing minutes or more. The exceptions to this are route 4 configuration creates a number of potential safety and route 10 between Darwin City and Casuarina, conflicts associated with merging vehicles, sight lines, which are marginally better out of peak times, with pedestrian/bicycle movement and vehicles turning in/ frequencies of around 30 minutes. These two routes out of Hart Court and Avena Street. provide the most frequent and regular service on the network, and also rank amongst the best connections Nightcliff Road comprises the potential to provide a in terms of usage. high quality bicycle route linking various community facilities and open spaces with the primary bicycle Areas more than 400 m to bus stops along major network. Opportunities for a complimentary public transport corridors generally consist of low-rise perpendicular bicycle route through Nightcliff and and low density areas of Nightcliff, Rapid Creek and Rapid Creek connecting open spaces, schools and Millner. other community facilities should be explored.
Car Parking in Residential Areas An analysis of car parking in medium to high density areas suggests a shortfall of on-site car parking provision on some sites developed prior to 1988, when car parking requirements were less than the current requirement of 2 bays per dwelling. This shortfall creates demand for on-street parking. In some instances, the road carriageway is wide enough to cater for informal and formal car parking on the street. Where the carriageway is less than 7 m wide, on-street parking constrains traffic circulation. The provision of formal indented on street parking is an option to improve traffic circulation.
Public Transport Darwin’s Mid Suburbs are fairly well served by public transport services along the Dick Ward Drive and Bagot/ Trower Road Corridors which pass through the study area on their way between the Darwin CBD and Casuarina. Several circuitous, single direction loop and occasional services run through the streets of Nightcliff, Rapid Creek and Millner.
The public transport connections currently available along regional and sub-arterial and primary roads within the Mid Suburbs provide relatively good Source: www.transport.nt.gov.au coverage and level of service compared to the rest of the region. Areas proximate to the Bagot/ Figure 11 - Bus routes servicing Trower Road corridor have the highest accessibility Darwin’s Mid Suburbs to frequent inbound and outbound public transport
Darwin Mid Suburbs Needs Assessment 43 * Bicycle enclosures are available Regional Network at the following locations: Darwin - Bike Pod, China Town car park, Smith St Legend North Casuarina Coastal Reserve Casuarina - Bus Interchange, Bradshaw Tce Shared path Bus Interchange, The Boulevard Casuarina * Palmerston - East Trower Rd Vanderlin Dr Park and Ride, Stuart Hwy On-road cycle lane Point Coolalinga - Humpty Doo - Park and Ride, Challoner Cct McMillans Rd Information bay McMi Dick FitzWarder Dr Dr Drinking fountain Darwin ll Robertson Army Barracks Rd International Airport ans Rd School Bago t Whitewood Rd Howard Stuart Hw y Stuart Hw y Dr Springs n Winnellie Berrimah Palmerston * Educational institution Roystonea Ave nn a Ave ilruth
e G r Bicycle enclosure B Rd rri ma h Chung * rt Hw Stua rt y r StuartCoolalinga Hwy ge Be University Ave Ti Medical centre
W a Darwin * Tce h East Arnhem Hwy Shopping centre Arm Temple Tce Temple Humpty Elrundie Ave Fre Casuarina Doo d Coastal kilometres s 0 1 * P ass Rd Reserve Please note: Overview only (not to scale). Moulden Zuccoli Buffalo 2 Creek approximate distance Places of Interest Cycle Distances Lee Point Darwin to Palmerston 22.5km 1 George Brown Botanic Gardens Beagle Gulf 2 Casuarina CoastalDARWIN Reserve MID SUBURBS NEEDSDarwin ASSESSMENT to Howard Springs 28km 3 Darwin Wharf Precinct Darwin to Casuarina 13km Bilingga St 4 Darwin Waterfront Casuarina to Palmerston 19km Damabil
5 Fannie Bay Foreshore Approximate distance only Royal Darwin Hospital a Dr Muirhead 6 Holmes Jungle Nature Reserve Darwin Private Hospital
L 7 East Point Reserve r e D e s P nd a H o l i ck Ave enbur y Lyons nt 8 Lake Alexander o Tiwi Gdns R R Tiwi d 9 Leanyer Recreation Park Casuarina Dripstone Beach Park
10 Nightcliff Foreshore Trower Rd Fitzmaurice Dr
B Dr Tambling Tce ri 11 nkin Tce Water Gardens e c owan T g Wanguri i V
n Nakara r D C R e u 12 Nightcliff Markets (Sunday) Park g D a r Ell n a s Brinkin t t W le
S r Bicycles and Pedestrians e 13 l
Rapid Creek Markets (Sunday) Charles l a Peace e g s Darwin Casuarina h Park
Rapid G Darwin has the highest per capita percentage of University Creek Casuarina 14 D Parap Markets (Saturday) Bus Inte rchange Casuarina cyclists of all Australian cities, in addition to a high C Wanguri r Nightcli Swimming a s proportion of people commuting and recreating on Swimming Pool uarina Dr r 23 Pool Allw 15 Mindil Beach Markets D D right St e ri L id pst Leanyer e foot. Complementing this high participation, the Mid s on a 10 e e R n k w d y ahC a Ala a C e Suburbs are (T servedhursday by a/S reasonableunday, S bicycleeasonal and) L res r St Wa D ga Plove r Aralia m r St pedestrian network as part of a regional network nampRapid Nightcli Rd an B 16 Museum and Art Gallery B T Ja a c biru comprising over 70 km of off road paths (refer Figure o dR e S n Creek Alawa t u k Wagaman g s St a p 12). This network connects the Mid Suburbs to the i is a n Chr d 17 Charles Darwin National Park r R S v owe Vanderlin Dr i Tr t l P Inner Suburbs, CBD and Northern Suburbs and l i a a re r S D provides for a variety of users and needs. Key links ters St r d Wulagi Cr 18 Darwin Military Museum t es Wa Wulagi within this network include: Nightcliff int R U 11 nio 9 Lanyon T n T ws Rd t Leanyer 19 Aviation Heritage Centre 13 R ce c e 22 12 Darwin e th S Recreation • higher order regional shared paths running along o t n Progress Dr Water Lee Po a o Rapid Cr eek th s Park M r Gardens d e Dick Ward Drive and McMillans Road; Shopping Cent re tt 20 Marrara Sporting Complex F Jingili al Yan a re e yu P Holmes s la D Sabine Rd Rd hw R M n d Moil r Yanyula • shared paths on Nightcliff Road, Progress Drive, so at a 21 Hazell Ct bin er Park la City Library o R k Bagot Road and Trower Road; and R d Coconut C Anula r e 22 Nightcliff Library Grove Millner s • the Nightcliff Foreshore and Rapid Creek shared M North Lake s Malak u Shoal McMillans Rd Shopping Cent re e
path which provides a high quality recreational l
Old McMillans Rd l Bay 23 Casuarina Library e Ap c r p Waste r h l purpose on a regional scale. O a Bagot R e
rd R d gu Depot d Ward Ward Dr Dick r Park d D m 24 oo Marrara D Karama Library sg Darwin r O Marrara Golf K ooli The Mid Suburbs lack a number of important nda C 20 Sporting Course res 25 Crocodylus Park Complex neighbourhood links connecting suburbs to activity Karama centres, transport corridors and important community 6 26 Cullen Bay Marina 24 Holmes facilities and services, also connecting to higher Totem Rd Jungle Nature Park order shared routes. Whilst local streets can provide McMillans Rd Bikes permitted reasonable bicycle access, the prevalence of on- Darwin on formal roads street parking and often narrow road widths can make International and fire trails. cycling unsafe, particularly for children. Airport
East Poin t East dR togaB 18 Militilitaryary MuseuMuseumm Point East Poin t Fitzer There are issues with the connectivity7 Recre ofation the existing Dr Reserve H c Fong Dr a Continues on 25 network, particularly aroundle theLim intersection of Bagot/ Ludmilla r A n Berrimah Creek e e Trower Road and Nightcliff road. y RAAF v A inset map S Golf t n Course o 8 s n The lack of priority for cyclists and pedestrians is also h Lake o J Alexander an issue where shared paths conflict with driveway y Bagot m A crossovers, side road junctions or left hand turn lanes N e across the network. m a r lu k Fannie D D r East-west connectivity across the study area is o The RAAF Base Bay u g Darwin
relatively limited as the major transport corridors l rednaV a Narrows l s
create a barrier for pedestrian and cyclist movement. S t
rD ni Narrows Rd Stuart Hwy 19 Australian Aviation P Fannie Bay Heritage Cent re layford RacS ecourse t Continues to Palmerston The existing shared path adjacent to Bagot Road isFa nnie Bay ot S Winnellie Rd R Wilm Gaol an d os Wells St compromised by multiple residential and business Museum s t E Parap Sm a Rd Pool accesses. While improved provision for cyclists s it Reicha rdt Rd Darwin t h A ok yaB einnaF yaB Sailing P ve Ludmilla Darwin would significantly improve connection to the Northerno Parap Stuar i Winnellie Coonawarra Rd Ho Showgrounds Club nt R P t Hwy Suburbs there are a number of issues which will need 14 ar d ap Hwy Raphael Rd Vesteys Gregory St to be addressed including restricted road reserve Stuart t Tiger Br ennan Dr Beach 5 Rd p S width and local drainage issues. isho Coonawarra B Rd Continues on Vesteys Bayview Lake Figure 12 - Shared Path Network Coonawarra ey Berrimah Charles Charles Darwi n Naval Bas e inset map Conacher St Woolner Vall r National Park 44 Museum andand ArAr t Darwin en d Gallery of the d 16 ls D F i Northern Territory a ale St 17 H d n i era f rm f n i A O n Berrimah g D Bikes permitted r on formal roads and fire trails. Eden St Mindil Mindil Beach Stuart Markets Reserve Park Hidden Valley Skycity 15 1 He Sadg roves Darwin nr Creek Hidden Motor Sports
Casin o d R h a m irre B Botanical y St Complex Cullen G a Gardens Valley Bay rd Continues on e n Mandorah s R d D inset map 26 Cullen Bay The uke S t r Fe Marina D rry to Mand Gardens n orah a n Garden Park n e e v Mickett Golf Course r A metres B n 0kilo 2 r o Creek e Hidden Lake s M g Dinah n c i M All h il T l e Beach o an Wishart J s n R B A Mc y d r approximate distance Dr a m n v Minn d e Larrakeyah in A t Secr ett Rd R Mitch Woo d Cavena S nd erl Continues to Mandorah t Larrakeya h el ds Ca mpbell Rd l St Sm St Va Army Bas e gh S i th L St a t g o Darwin Stuar o
t n Knuckey Robertso n
Entertainmrtainment Esp S t Hwy R tt d Barrack s Centre la Darwin e Lagoon n n ad Continues on Bicentennial e Darwin Bus Ben main map Rd ans Park Interchange 21 Bleesers Mi ll Creek Rd te Mc ng a Dr Darwin Berrimah T i v er Rd Berr imah n Convention e e n Th or h Centre d a St tc 4 i l u e a Parliament K rt R H port D d w Ex House Darwin y r 3 Wharf Pr ecinct Tig ct Stokes Hill er Pinelands C Br n Wharf Wishart en ulliva niwraD troP niwraD na ’S n O Fort Hill Dr East Wishart Rd Continues on Wharf Tivendale Palmerston map Arm overleaf
Hamaura Rd DARWIN MID SUBURBS NEEDS ASSESSMENT
Darwin Airport Controls In addition to any controls in the NT Planning Scheme, airport control legislation applies additional land use controls to the study area. All the Mid Suburbs are subject to height restrictions of various degrees which are enforced by the Department of RAPID Defence, and some areas are further subject to CREEK Aircraft Noise Intrusion. NIGHTCLIFF
Height restrictions As shown on the map opposite, there are various levels of height restrictions in the Mid Suburbs depending on how close they are to the airport MILLNER runway. There are areas of each suburb that are subject to Department of Defence approval for structures over 15 m, and Ludmilla in particular has COCONUT increased development restrictions in place. GROVE
Noise DARWIN INTERNATIONAL Australian Noise Exposure Forecast (ANEF) maps AIRPORT produced by the Department of Defence provide information regarding aircraft noise exposure near Defence bases. The map opposite illustrates the ANEF contours and the level of exposure each LUDMILLA suburb faces.
ANEF Acceptable Use contour < 20 residential, hotel/motel/hostel, commercial, light industry, general industry
< 25 hotel/motel/hostel, commercial, light industry, general industry Legend < 30 light industry, general industry Department of Defence consent required for: > 30 general industry only All structures
Public Safety Zones Structures greater than 7.5m There is a Public Safety Zone at the end of a the runway in Ludmilla where development is restricted Structures greater than 15m to limit the number of people on the ground at risk of injury or death in the event of an aircraft accident at Structures greater than 45m take-off or landing. Aircraft Noise Exposure Forecast (ANEF) Contours
Darwin Mid Suburbs Needs Assessment 45 DARWIN MID SUBURBS NEEDS ASSESSMENT
9.3 Community Feedback Cycling and Walking Cycling is considered a good transport alternative by Road Networks and Parking many people and the existing shared path network is There is a general feeling amongst the community thought to provide a reasonable basis for expansion. that the existing road network is struggling to cope Safety and access around major roads was with increased development, and therefore increased considered to be a primary issue by some cyclists. traffic, in the area. Both drivers and cyclists are supportive of The impact of more cars in the area due to increased improvements to the cycling network in order to development is causing issues with on-street parking, provide safe access for all transport modes. The particularly in narrow local streets where parking on need for better cycling access on local streets has both sides is restricting traffic movement. been identified, particularly to provide safe routes for children to ride to school. The area around the Progress Drive and Dick Ward Drive intersection is considered a particularly Providing comfortable areas to walk around busy congested pinch point that is getting worse due to shopping areas, public transport stops and major development in the area. roads is considered an area in need of attention.
“The streets are too narrow to cope with existing “In some respects and in some areas it’s OK, traffic, especially when you have cars parked on but as soon as you want to veer off the cycle both sides of the road. Trying to get out of the routes, it gets very rough – not very bike- suburbs on to the main roads to do the school friendly.” run is a big hassle.” Mid Suburbs Resident Mid Suburbs Resident
Public Transport “The NT is a unique situation of having some of the highest percentages of students riding to Improvements to public transport are seen as school so there is real opportunity to develop essential to revitalising the area. Existing public transport services are used intermittently by most this further, especially for our primary students people as they are considered unreliable and who are most likely to ride.” only suitable for particular kinds of trips, such as Principal, NT Schools commuting into the CBD.
Public transport improvements are considered important to reducing reliance on cars for travel and for helping mitigate the impacts of parking and traffic congestion. There is a general view that people would be happy to catch public transport more regularly should the service be more reliable and suitable to their needs.
“You can’t exist in Darwin without a car. You need to get around at weekends. You can’t do that effectively by bus. And the timetables are so unreliable.” Mid Suburbs Resident
46 DARWIN MID SUBURBS NEEDS ASSESSMENT
Investigations into the regional public transport 9.4 Implications for the system identify the potential for 30 minute all-day bus Area Plan service frequencies along the Dick Ward Drive and Bagot/ Trower Road corridors. Transport corridors within the Mid Suburbs serve a number of functions. These include the circulation of To supplement the existing frequencies of these major private vehicles and public based transport through corridors, a bi-directional local route utilising Progress road networks, pedestrians and cyclists, and car Drive, Trower Road, Ryland Road and McMillans parking. Road would provide a connection between the Mid Suburbs, the Airport and Marrara. The Area Plan recognises that transport corridors within the Mid Suburbs operate on the regional, Bicycles and Pedestrians sub-arterial and primary, and local levels. As such, the Area Plan utilises these designations to provide A proportionate increase in people utilising active for strategic land use responses with relation to road transport and associated infrastructure is expected networks, on-street car parking, public transport in line with population growth. This is due to an and pedestrian and cyclist circulation within the Mid increased range of services and employment Suburbs. opportunities available at distances suitable for active transport trips. Current issues identify the need for improved interconnection of the pedestrian and Road Networks cycling networks to improve the functionality of the It is acknowledged that population growth in the overall network. study area will result in more vehicles using the road network and therefore timely upgrades to the road The Darwin Mid Suburbs Area Plan considers a network will be required to maintain an acceptable number of options to promote the progressive level of traffic movement. The required upgrades have augmentation of the existing active transport network been outlined early in this chapter. including: • the maintenance and enhancement of the existing Most of these upgrades include signalising and pedestrian and cycling routes; upgrading existing intersections and potentially increasing carrying capacity on some roads. • construction of identified missing links in the network; and Car Parking in Residential Areas • providing for the enhancement of cyclist and Where medium and higher densities are proposed, pedestrian routes through the integration of the issue of on-street car parking should be mid and end of trip facilities including drinking considered. In instances where the road carriage way fountains, interpretive signage, shelter, bicycle is less than 7 m wide, indented car parking bays may parking and associated facilities. assist in improving traffic circulation. The Area Plan supports the ongoing implementation It is also noted that car parking in residential streets of the Darwin Bike Plan 2015-2020 (City of Darwin). provides an opportunity to calm traffic and that the Potential transport infrastructure upgrades providing demand for on-street car parking in the Mid Suburbs opportunities to enhance the pedestrian and cycling may decrease as people choose to shift from the networks include: car to public transport in line with an improved public • Incorporation of a dedicated active transport link transport network. adjacent to Bagot Road;
Public Transport • Sabine Road; • Old McMillans Road; The attractiveness and benefits of infill development within the Darwin Mid Suburbs will be enhanced by • Nightcliff Road; and higher quality public transport services. The increase in population within activity centres will be supported • Routes along appropriate local streets. by increased service frequencies across the network.
Darwin Mid Suburbs Needs Assessment 47 DARWIN MID SUBURBS NEEDS ASSESSMENT
10. Essential Services
For the parts of the Mid Suburbs serviced by the 10.1 Introduction downstream pump station in Rapid Creek; developing The Area Planning process is one of assessing areas in Eaton, Marrara, and Berrimah North, patterns of growth and managing expected future although outside of the Mid Suburbs, currently growth in line with the expectations of the community discharge to the same Leanyer Treatment Ponds and the capability of the networks that support it, both catchment and share a common downstream trunk in terms of current capacity and necessary upgrades. sewer route. Triggering of strategic augmentation proposed for the Leanyer Treatment Pond catchment To this end, investigations have been carried out with is therefore influenced by development both internal regard to the potential impacts population growth and external to the Mid Suburbs. The Rapid Creek within the Mid Suburbs will have on the essential pump station is currently nearing capacity, and either infrastructure, including water, sewer, power and significant alleviation of load from or augmentation to telecommunications services. Through this analysis, sewer infrastructure is required before upgrades of augmentations likely to be required to support future the station can be considered feasible. development areas within the Mid Suburbs have been identified. For the parts of the Mid Suburbs within the catchment of the LWWTP, the hydraulic constraint of the plant needs to be considered. Whilst infill in 10.2 Context the Mid Suburbs is smaller in scale relative to the development expected within the Inner Suburbs and Water Supply CBD, cumulatively development will likely incur the need for significant augmentation of the plant. The Mid Suburbs fall within two water reticulation supply zones, Stuart Park zone and Casuarina zone, Power and Water Corporation has strategies in place with the separation existing between Fitzer Drive and to control and manage the impacts of the LWWTP on Totem Rd. Power and Water have strategies for the the community including the designation of a 700m augmentation of these zones to meet future needs, odour buffer, where development is to be limited. Part however the zone boundaries within the Mid Suburbs of this buffer exists within the Mid Suburbs, in the are not expected to significantly change. south western parts of Ludmilla. Power Supply Telecommunications The Woolner and Casuarina substations provide There are currently several telecommunications electricity to the Mid Suburbs at 11 kV through a companies providing services and infrastructure combination of underground and overhead feeders. through the area. All dwellings within the Mid Suburbs have the ability to connect to the NBN Wastewater Network broadband network and coverage of mobile phone The study area contains sewers discharging to two services is seen as acceptable through the area. separate catchments. Ludmilla, Coconut Grove, and parts of Nightcliff discharge to the catchment of Ludmilla Waste Water Treatment plan (LWWTP), while Rapid Creek, Millner, and other parts of Nightcliff rely on the pump station in Rapid Creek to transfer to the Leanyer Treatment Ponds.
48 DARWIN MID SUBURBS NEEDS ASSESSMENT
Figure 13 - Essential Services
Casuarina Drive
Rapid Creek Road RAPID CREEK
NIGHTCLIFF
Progress Drive Trower Road
Sabine Road
MILLNER
McMillans Road Dick Ward Drive Dick Ward
COCONUT GROVE
DARWIN INTERNATIONAL AIRPORT
Legend
Pump Station
LUDMILLA Bagot Road Elevated Tank
Utilities (Zone U)
Darwin Mid Suburbs Needs Assessment 49 DARWIN MID SUBURBS NEEDS ASSESSMENT
Stormwater Drainage 10.3 Community Feedback The majority of local stormwater infrastructure and drains within the Mid Suburbs are the responsibility Residents have outlined that the growth of the Mid of the City of Darwin, which is responsible for Suburbs to date is impacting upon essential services, the maintenance of these assets, while the trunk which due to their age, or inadequate provision drainage system is the responsibility of the Northern are not coping with existing development. There Territory Government. In addition, drainage systems is concern amongst the community that increasing associated with Northern Territory controlled road development density within certain areas of the Mid networks are maintained by the Department of Suburbs will continue to put pressure on existing Transport, and drainage associated with Darwin services. International Airport and the RAAF Base, is the responsibility of the NT Airports Pty Ltd and There was agreement amongst the community that Department of Defence respectively. consideration must be given to infrastructure planning and investment before development is approved. Due to the multitude of asset owners, a coordinated approach to the maintenance of the network is challenging. The Darwin region Flood Mitigation “I often turn on the tap and brown water comes Advisory Committee Report has identified this issue out. The infrastructure is so old it can’t cope. as a barrier to ensuring that stormwater networks How will it cope if the population is doubled in are maintained into the future. To address this issue, size?” the report recommends that best practice policy for stormwater management is addressed, including Mid Suburbs Resident the objective to reduce the risk of stormwater flooding. To support this, DLPE has the responsibility to hydraulically model trunk drainage systems to mitigate the impact of development. This also 10.4 Implications for the includes the preparation of jointly funded maintenance agreements for the ongoing management of trunk Area Plan drainage to maintain the efficiency and capacity. Water Supply A number of trunk drains within the Mid Surburbs area have been subject to intense sedimentation (such Work on the Casuarina zone system will see the as Ludmilla Creek and Kulaluk drains) which has Nightcliff tank decommissioned as trunk distribution reduced the capacity and efficiency of these drains, systems are augmented to ensure adequate peak requiring ongoing maintenance. flow from the Rapid Creek tank. Ultimately a new tank will be installed at Marrara and a new water zone In addition a number of stormwater infrastructure created as a result. works and further investigations are currently underway or programmed, as recommended by the As introduced in the Darwin Inner Suburbs Area Plan Darwin region Flood Mitigation Advisory Committee (DISAP), the Power and Water Corporation (PWC) Report. These measures include: is in the process of transferring northern Ludmilla to • Mitigation works to the Ludmilla and Rapid Creek a new zone system, based on the planned ground catchments including the construction of detention level storage at Berrimah and capacity within the basins and upgrades to important drainage existing elevated tank at Winnellie. The Salonika and systems; and Parap tanks will be decommissioned as works on the Berrimah tank progress. • NT Airports to investigate and implement mitigation solutions to manage stormwater runoff Power Supply from development on Airport land. A new zone substation at Leanyer, expected to be fully operational in mid-2016 has resulted in increased
50 DARWIN MID SUBURBS NEEDS ASSESSMENT
capacity to the Casuarina zone substation and will towards the Leanyer Treatment Ponds will be allow for a new feeder to be provided at Nightcliff. constrained by capacity limitations at the downstream Rapid Creek pump station conveying sewerage Expected load from growth within the Mid Suburbs from Rapid Creek, Millner and parts of Nightcliff. and the Darwin International Airport/RAAF Base Investigations are beginning into a feasible option for will increase the viability for an additional zone upgrading capacity in the Rapid Creek sewer network sub-station to be located in the Mid Suburbs. Given to accommodate development in the Mid Suburbs expected loads attributed to the ongoing development and surrounding areas. These investigations need this zone sub-station would be ideally located in the to consider potential system augmentation that could vicinity of the McMillans Rd/Bagot Road intersection. be triggered by development proposals in Eaton (Darwin Airport) and Berrimah North, which although Wastewater Network existing outside of the Mid Suburbs currently share downstream infrastructure. Until investigations are The hydraulic load limitation of the Ludmilla Waste completed, out of sequence development or major Water Treatment Plant (LWWTP) is acknowledged. rezoning in these areas may be limited or require As this facility serves a broader catchment of additional funding from developers to accelerate a Darwin metropolitan area, this issue will require solution. further consideration within the context of in-depth infrastructure programming analysis. The odour In general, local densification is likely to trigger buffer associated with this facility influences concepts replacement and upsizing of local gravity for future development to ensure development does infrastructure. Contribution plans for the replacement not impact on its future operation. of this infrastructure are expected to be facilitated through a Master Planned approach, informed by the Infill development in areas serviced towards the Area Plan, wherever possible. LWWTP will be reliant on the limited capacity available at the existing Coconut Grove and Ludmilla Telecommunications sewer pump stations. Upgrades at Coconut Grove sewer pump station are feasible, although are Only minor upgrades to existing telecommunications expected to trigger replacement of the sewer rising infrastructure will be required. It is not anticipated that main along Dick Ward Drive. Ludmilla sewer pump additional investment will be required in this area. station cannot be upgraded at its current location and needs to be relocated to a new location. Due to Stormwater Drainage its proximity to nearby residents along with it being in a location susceptible to flooding, a new Ludmilla In addition to the work coming out of the sewer pump station will still be limited in the area it recommendations of the Darwin region Flood can service and may only be able to cater for a small Mitigation Advisory Committee’s Report, further proportion of infill in close proximity to the station. investigations are required to ensure that increasing development does not exacerbate any existing Transfer of increased load upstream is expected to stormwater drainage issues across the broader area. be better suited to another new pump station at an alternative location. Strategic planning from Power The Darwin Mid Suburbs Area Plan provides the and Water proposes a second new sewer pump development blueprint to inform any stormwater station situated on land between Fitzer Drive and investigations that may be carried out to determine Totem Road, that could accept the increased load any required network augmentation within the for transfer to the LWWTP whilst also taking into scope area. This information will be vital for the consideration the future development potential of the establishment of fund capturing mechanisms to surrounding undeveloped land in Coconut Grove. facilitate required works. A 50 m odour buffer would be required with the proposed new pump stations.
Infill development in Mid Suburbs areas serviced
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11. Environment and Heritage
11.1 Introduction 11.2 Context The Darwin region is rich in natural resources Riverine and Stormwater Flooding and associated natural attributes. The relatively flat landform of the Darwin Region, the extensive Riverine flooding occurs when heavy rain causes coastal areas and the highly seasonal rainfall create high water levels in rivers or creeks to overtop the development constraints associated with large tidal banks and is one of the major natural hazards in the ranges and seasonal inundation. Northern Territory.
The community places a high value on the protection Monsoonal rain or rain associated with cyclones and conservation of the natural environment, and or severe storms can cause riverine flash flooding, its coastal habitats, and inland wetlands, lagoons, which can exacerbate inadequate local drainage and streams and riparian vegetation. These habitats are cause groundwater to rise above the natural surface. often linked by seasonal surface and groundwater Flooding of Rapid Creek has historically caused flows. inundation issues for a number of properties within Millner, most recently During Cyclone Carlos in 2011. The Mid Suburbs form a fairly discrete area, separated from adjoining suburbs by Darwin The Darwin Region Flood Mitigation Advisory International Airport to the south-east and the Committee was formed in November 2014 to provide conservation lands along Ludmilla Creek to the south- advice to Government with regards to options for the west and Rapid Creek to the north-east. The natural mitigation of insurance damages due to flooding in values of these two creeks will be protected and the Darwin region. The Committee provided a report maintained in the Area Plan. to Government in July 2015 that included a number of recommendations for structural, resilience and land Land is fundamental to indigenous identity and use planning mitigation measures. cultural vitality. The ancient and rich Aboriginal heritage provides a context for traditional cultural A key item of the Action Plan in the Committee’s activities and community recognition. Report is to investigate non-structural mitigation measures for properties where the proposed flood As there are three Indigenous Communities within mitigation measures are not effective, including the Mid Suburbs, it is essential to identify and flood proofing measures and or rezoning to facilitate acknowledge sites that are of cultural significance redevelopment. The report referred to a potential 2 to Aboriginal heritage. The Mid Suburbs Area Plan density of 6 dwellings per 1000m as part of recognises the importance of heritage sites, buildings rezoning and mitigating the significantly impacted and objects based on indigenous culture, tradition properties against flood. Further investigation into the and historic events. development of affected lots has been undertaken which has indicated that allowing for a density and development in line with Zone MD (Multiple Dwelling Residential) can achieve an appropriate outcome from both flood mitigation, and land use planning points of view.
The current Rapid Creek Flood Map published by Department of Land Resource Management (DLRM) identifies a total of 67 properties are inundated in a 1% Annual Exceedance Probability (AEP) flood event. Further ground-truthing of the map by the Department of Lands, Planning and the Environment (DLPE) identified that the broad scale of the modelling and the digital elevation model limited the accuracy of
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Figure 14 - Environment and Heritage
B A
Legend C Primary Storm Surge
Secondary Storm Surge
Preliminary Revised Primary Storm C C Surge Extent Zone CN (Conservation)
A Recorded Sacred Site
B Burial Place
C Area of cultural significance
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the flood map. A more accurate digital elevation locations, land reclamation and tidal barriers. model has been developed to support updated flood modelling that better reflects events on the Storm tide is the collective name for the inundation ground (Refer Map at Attachment 1 at Page 60). level above the normal high tide water level along the This preliminary updated flood mapping forecasts shore as a result of a storm surge event associated an amended 1% AEP flood level that reduces the with strong onshore winds, which cause water to pile number of potential properties impacted from 67 to up against the coast. 34. Parts of the Darwin Mid Suburbs are located in the DLPE has identified structural mitigation measures in primary and secondary storm surge meaning that if conjunction with NT Airports that has the potential to and when a storm tide event happens in conjunction reduce the flood peak by 35% through: with a high or spring tide, the storm tide can reach areas that might otherwise have remained dry. Figure • the construction of a new detention basin on 14 highlights the areas affected by primary and Section 4294 Hundred of Bagot, storing 80,000ML secondary storm surge. of stormwater from the suburbs of Malak, Anula and Moil; The current storm surge map for Darwin Harbour has been modelled on a similar broad scale to initial • new drains to divert storm water into either the flood maps. DLRM has since modelled storm surge in Marrara Triangle basin and the Yankee Pool Rapid Creek using the more refined digital elevation basin; and model used for updated riverine flood maps. This • provision within NT Airports development work has produced a preliminary map (subject to guidelines for all future development to maintain finalisation) which identifies a decrease in the area pre-development rates of stormwater flow. affected by the Primary Storm Surge Area (PSSA) extent within Rapid Creek (Refer Map at Attachment 3 at Page 62). The existing and remodelled preliminary Modelling of the post mitigation flood impact with PSSA extents can be seen on the map at Figure 14. the proposed structural mitigation measures in place demonstrates a further reduction in the area affected by the 1% AEP flood level. This preliminary indicative Rapid Creek Environment Reserve flood mapping forecasts that only 21 properties in Rapid Creek is a small, relatively natural drainage the Rapid Creek and Millner area would then be system located in Darwin’s Northern Suburbs, and is impacted by the 1% AEP flood level once the works included in the Darwin Mid Suburbs Area Plan. The are complete (Refer Map at Attachment 2 at Page creek extends for a distance of 9.8 kilometres and 61). The completion of structural mitigation works drains a catchment of approximately 28 km². is scheduled to occur in 2017/18. All preliminary mapping is draft and subject to finalisation by the Rapid Creek supports a number of important remnant responsible agency. vegetation communities and the creek channel is virtually undeveloped for its entire length. The Storm Tide Flooding creek corridor has been acknowledged as a major recreation resource, including a visual resource for The Northern Territory adopts the Primary Storm Tide the Darwin region. which represents a 1% AEP as the basis for land use planning and endorses the general policy of locating The Darwin International Airport (DIA) Master future urban development, especially residential uses, Plan 2010 recognises the significant values of the where these serious risks can be avoided. environmental components of the creek and has included an environmental management plan in order The Area Plan supports property protection strategies to conserve the creek and its ecosystem. that include appropriately engineered standards for developing and maintaining infrastructure, such The Master Plan, states that DIA is committed to the as roads and storm water drains and, in selected conservation and management of a corridor which
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runs alongside Rapid Creek, 75 metres from the creek’s centreline, and acts as an environmental 11.3 Community Feedback buffer zone. Preservation of the Coastline The Master Plan also indicates that over the last Local residents consider the protection of the coastal 10 years, DIA has implemented a weed control environment as an important asset for recreational and vegetation rehabilitation program and water and tourism purposes. quality monitoring in the Rapid Creek corridor and catchment. Some residents have indicated that as much of the south-west part of the Mid Suburbs Area is Public amenity features have also been installed by susceptible to storm surge and inundation, it could the Airport within the Rapid Creek Environmental be preserved for recreational use and open space. Reserve that includes approximately 2.5 km of For example, a bicycle and pedestrian path could public nature trails, picnic tables and resting seats, be established along the coastline as a connection interpretive signage and stabilised entry points to the from the Darwin CBD to Casuarina through the Mid creek enabling safe public access without destroying Suburbs. the fragile creek banks and an interface with the new “Nightcliff was designated a Garden suburb, Darwin Airport Resorts bird viewing platform. and its streets reflects this, e.g. Bougainvillea, Hibiscus, Aralia etc. From the earliest days Regional Culture and Heritage of European settlement, Nightcliff has been The Heritage Act (NT) gives provision to protect and the place to come to catch the refreshing sea manage regional culture and heritage significance breezes.” (particularly WWII sites), recognising their capacity Rapid Creek Resident to enrich lives and provide a series of connection for locals and visitors. Ludmilla Creek Catchment There are no areas of significance identified in the The Ludmilla Creek Landcare Group has suggested Darwin Mid Suburbs, including WWII sites. that a recreational walking trail be established to link residents in Ludmilla, the Narrows, Fannie Bay Aboriginal Sacred Sites and Parap with the diverse natural environments of Ludmilla Creek and East Point Reserve. The The provisions of the Northern Territory Aboriginal Landcare Group in their submission also take note of Sacred Sites Act has given some assurance to the “Cajaputi Walk Trail” which is located adjacent to protect prescribed archeological places and objects, the Nemarluk Drive. This existing trail provides good including sites of Aboriginal and Macassan origin. pedestrian links with the Nemarluk Drive and the Narrows through to Totem Road and could be further The Aboriginal Areas Protection Authority (AAPA) improved. has identified two sites owned by Gwalwa Daraniki Association Incorporated comprising Lot 8360 Town of Nightcliff (95 Dick Ward Drive, Coconut Grove) “The relationship with both of the creeks, and Lot 5182 Town of Darwin (213 Dick Ward Drive, should be strengthened, and the extent of Ludmilla) that contain areas of cultural and historical catchment areas acknowledged and respected. significance to Larrakia custodians and/or other Recreational reserves along their length, in the Aboriginal groups. case of Rapid Creek, should be maintained, and In the certificate issued by AAPA there are three areas identified to be of cultural significance, one recorded enhanced in terms of amenity. “ sacred site and one burial site. Any future works in Australian Institute of Architects these area should give consideration to the historical and cultural significance of these sites.
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Riverine and Stormwater Flooding 11.4 Implications for the The primary non-structural mitigation measure advocated for during public consultation included Area Plan the allowance for land liable to flooding be rezoned to allow a density of 6 dwellings per 1000m2 to be Conservation of environmental, cultural and identified through the Mid Suburbs Area Plan. The heritage values rationale of this approach, according to submitters, Current land of environmental, cultural and heritage included: significance within Zone CN (Conservation) should • Due diligence and public safety; be retained to preserve and promote the intrinsic conservation values of these areas into the future. • TIO has changed its risk assessment approach from flood risk pooling to individual risk This principle will also apply to areas within Zones PS assessment. In some cases, annual premiums (Public Open Space) and OR (Organised Recreation), have been quoted to be in excess of $19 000; whereby retaining these areas will ensure that • The concept is “cost neutral” and the only other recreational values are maintained, whilst promoting alternative is for the NT Government to acquire the inherent ecological values of the land. land liable to flooding; Proposed changes to Zone CN (Conservation) • The proposed density is in keeping with the within the Mid Suburbs will be considered through character and density of Zone SD; the relevant Planning Scheme Amendment process, • The landowners can opt in or out of the “willing underpinned by the relevant evidence to suggest that buyer, willing seller” concept to redevelop the the land is appropriate for development. This process land; and will include consultation with relevant bodies, and the wider community. • The concept provides an improved amenity for the broader community through increased public The Area Plan encourages coordination with the open space and interaction with the Rapid Creek NT EPA, AAPA, Department of Land Resource corridor. Management (DLRM) and City of Darwin to facilitate consistent policies, knowledge sharing about the quality of conservation areas and effective storm water management. The Area Plan establishes the likely form of future development and contributes to the improvement of ecological protection and stormwater discharge practices in accordance with NT EPA’s strategy.
Land Subject to 1% AEP Flood and Storm Surge Risk in Rapid Creek Catchment The most recent riverine flood modelling shows that without structural mitigation measures, 34 properties will be affected by riverine flooding.
After the structural works in the catchment are undertaken in 2017/ 2018, the number of lots affected by flooding is expected to be reduced to 21. However, ongoing investigation of flood behaviour in the area has not identified feasible works that would enable the level of flooding to be reduced further.
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To provide long term flood protection for these ongoing role in the environmental management of the properties will therefore require an increase in the creek system. actual floor level of habitable buildings on these lots. In recognition of this, and the location of these 21 properties it is recommended that land owners be given the opportunity to undertake redevelopment to mitigate the impacts of flood water ingress (ie. rezoning to facilitate a new built form that is resilient to flooding).
This rezoning should be extended to include parcels along Rapid Creek Road, Millner and other significantly impacted lots to ensure the achievement of a consistent streetscape and neighbourhood character.
Conservation of the Rapid Creek Catchment Rapid Creek is the only significant freshwater system in Darwin and as such, it is considered to be of environmental and social importance. The Area Plan recognises and maintain the natural value of the Rapid Creek catchment area. Any future policies and plans concerning this area will encourage coordination with the Rapid Creek Catchment Advisory Committee and DIA, as they have had an
Nightcliff Foreshore and Rapid Creek
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Elton Consulting. (2015). Social Infrastructure Assessment - Darwin Mid Suburbs. Darwin: Elton References Consulting. GHD. (2016). Darwin Middle Suburbs Urban Services Infrastructure Master Plan. Darwin: GHD.
Jacobs. (2016). Darwin Middle Suburbs Traffic Study. Australian Bureau of Statistics. (2013, September 23). Darwin: Jacobs Socio-Economic Indexes for Areas. Retrieved from Australian Bureau of Statistics: http://www.abs.gov.au/ MacroPlanDimasi. (2013). Greater Regional Land websitedbs/censushome.nsf/home/seifa Use Plan Update: near term and far term forecasts for residential, retail, commercial and industrial sectors. Bannick, P., & Brock, J. (2000, April). Rapid Creek Brisbane: MacroPlanDimasi. Management Plan. Retrieved from Rapid Creek Landcare Group: http://www.rapidcreek.org.au/Rapid_ Northern Territory Environment Protection Authority. Creek_Landcare_Group/Report_links_files/0.%20 (2014). A Stormwater Strategy for the Darwin Harbour Contents.pdf Region. Darwin: NTG. Cardno. (2015). Darwin Bike Plan 2015-2020. Northern Territory Government. (2015). Cycling Path Brisbane: Cardno Maps. Retrieved September 2015, from Department of Transport: http://www.transport.nt.gov.au/ City of Darwin, Northern Territory Government and activetransport/cycling/cycle-path-maps Australian Government. (2015). Darwin City Centre Masterplan. Darwin: City of Darwin. Northern Territory Government. (2015). Darwin Public Bus Network. Retrieved September 2015, from Darwin Harbour Advisory Committee. (2010). Darwin Department of Transport: http://www.transport.nt.gov. Harbour Strategy. Darwin: NTG. au/__data/assets/pdf_file/0008/39185/darwin-public- bus-network-map.pdf Darwin International Airport. (2010). Darwin International Airport Master Plan 2010. Retrieved from Northern Territory Government. (2015). Storm Northern Territory Airports: http://www.ntairports.com. Surge Inundation Maps. Retrieved September 2015, au/sites/default/files/NTA_MasterPlan-Final-6Dec10_ from Department of Land Resource Management: DARWIN_web.pdf http://www.lrm.nt.gov.au/water/surface/flooding/ inundationmaps Department of Lands, Planning and the Environment. (2015). Northern Territory Compact Urban Growth Policy. Darwin: NTG.
Department of Lands, Planning and the Environment. (2015). Darwin Regional Land Use Plan. Darwin: NTG
Department of Lands, Planning and the Environment. (2015). Darwin Region Flood Mitigation Advisory Committee. Darwin: NTG
Department of Land Resource Management. (2014). Darwin Harbour Water Quality Protection Plan. Palmerston: NTG.
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Attachments
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Attachment 1
Preliminary computed 1% AEP flooding extent prior to structural mitigation measures, based on updated flood model.
Data Sources Jacobs Dept of Lands, Planning and the Environment
Preliminary computed 1% AEP flooding extent prior to structural mitigation measures, based on updated flood model
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Attachment 2
Preliminary computed 1% AEP flooding extent post construction of structural mitigation measures.
Data Sources Jacobs Dept of Lands, Planning and the Environment
Preliminary computed 1% AEP flooding extent post construction of structural mitigation measures
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Legend Revised Primary Storm Surge Extent
AttachmentAttachment 3 3
PreliminaryPreliminary revised revised Primary Primary Storm Storm Surge Surge Extent,Extent, based based on on updated updated storm storm surge surge model. 62 model DARWIN MID SUBURBS NEEDS ASSESSMENT
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Email: [email protected]
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Phone: 08 8924 7540
NTNT Planning Planning CommissionCommission LevelLevel 5, 2, Energy Energy House 18-2018-20 Cavenagh Cavenagh StreetStreet DarwinDarwin
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The Northern Territory Planning Commission is an independent and advisory statutory authority that prepares strategic land use plans to manage growth in anticipation rather than response.
The Planning Commission proactively sets the strategic framework for better integrated land use, transport and infrastructure planning, delivering more sustainable and cost-effective outcomes for the community, with sensitivity to environmental and heritage values.